Kementerian Koordinator Bidang Kesejahteraan Rakyat RESEARCH REPORT Qualitative Study of the Proliferation and Integration of Community Empowerment Programs IN CENTRAL JAVA, WEST NUSA TENGGARA, AND SOUTH SULAWESI 2014 ~lip -.r sf APnm The authors are responsible for the findings, views and interpretations in this report, which are not associated with nor do they represent the organizations that fund the activities and reports of SMERU Research Institute. For the most part, the studies in this publication used interview and focused group discussion techniques. All related information was recorded and is stored at the SMERU offices. For more information about SMERU publications, please contact us by phone on 62-21-31936336, by fax on 62-21-31930850, or by e-mail at smeru@smeru. or.id; or visit our website at www.smeru.or.id. Studi Kualitatif Proliferasi dan Integrasi Program Pemberdayaan Masyarakat di Jawa Tengah, Nusa Tenggara Barat, dan Sulawesi Selatan / Muhammad Syukri et al. -- Jakarta: Lembaga Penelitian SMERU, 2013. x, 108 p.; 30 cm. -- (Laporan Penelitian SMERU, September2013) 1. SMERU II Syukri, Muhammad 362.57 / DDC 22 RESEARCH REPORT Qualitative Study of the Proliferation and Integration of Community Empowerment Programs IN CENTRAL JAVA, WEST NUSA TENGGARA, AND SOUTH SULAWESI 2014 WRITERS Muhammad Syukri Hastuti Akhmadi Kartawijaya Asep Kurniawan EDITOR Mukti Mulyana Gunardi Handoko Liza Hadiz Budhi Adrianto SMERU RESEARCH INSTITUTE JAKARTA SEPTEMBER 2013 TABLE OF CONTENTS iv TABLE OF CONTENTS v List of Tables v List of Figures v List of Boxes v List of Appendices vi EXECUTIVE SUMMARY 1 1. INTRODUCTION 3 1.1 Background 6 1.2 Objectives 7 1.3 Methodology 11 1.4 Profile the Research Locations 15 II. PROLIFERATION OF EMPOWERMENT PROGRAMS: BENEFITS AND COSTS 17 2.1 Types of Empowerment Program in the Regions 35 Ill. INTEGRATION OF EMPOWERMENT PROGRAMS: CONCEPT AND INITIATIVES IN THE DISTRICTS 37 3.1 The Concept of Integration 41 3.2. Overview of Integration Initiatives in the Regions 47 IV. PROGRAM INTEGRATION AND DEVELOPMENT IN THE VILLAGES 49 4.1 Program Integration at the Village Level 62 4.2 Factors Affecting Integration in the Villages 65 4.3 Opportunities, Benefits and Challenges of Program Integration 69 4.4 Integration and Building Community Capacity in Program Management 71 V. CONCLUSIONS AND RECOMMENDATIONS 73 5.1 Conclusions 76 5.2 Recommendations 78 REFERENCES 79 APPENDICES 97 CASE STUDIES 106 GLOSSARY V v LIST OF TABLES 10 Table 1. Study Location 12 Table 2. Profile of the Research Locations 18 Table 3. Empowerment Programs in the Sample Villages 24 Table 4. Benefits of Program Proliferation 30 Table 5. Participation of Women and Poor People in Empowerment Programs 32 Table 6. Costs of Program Proliferation 51 Table 7. Characteristics of the Village Medium Term Development Planning in the Sample Villages 55 Table 8. Relevance of Programs to Village Medium Term Development Plan (RPJMDes) v LIST OF FIGURES 38 Figure 1. Horizontal Integration 38 Figure 2. Vertical Integration 39 Figure 3. Integration Juncture v LIST OF BOXES 31 Box 1. Participation of Minority Groups in Empowerment Programs 33 Box 2. Enough of Self-Reliance 43 Box 3. Integration in Kebumen 56 Box 4. Community Development Program in Luwu Timur 59 Box 5. Getting Programs is Easy 98 Box 6. Integration in Kebumen District 99 Box 7. Integration between ADD and Prima Kesehatan in Barru District 99 Box 8. Community Development and Integration in Luwu Timur District 100 Box 9. Village Planning and Local Government Support in Barru District 100 Box 10. Empowerment Programs and Minority Groups in Barru District 101 Box 11. Program Proliferation: Turning Costs into Benefits 102 Box 12. Enough of Contributing 103 Box 13. Couldn't be Bothered 104 Box 14. Getting Programs is Easy 105 Box 15. Konsorsium LSM in Lombok Tengah v DAFTAR LAMPIRAN 80 Appendix 1. Overview of the Research Locations 82 Appendix 2. Community Empowerment Programs from National Government 85 Appendix 3. Community Empowerment Programs from Local Government 87 Appendix 4. Empowerment Programs from Non-Governmental Organizations 88 Appendix 5. Institutions, Leadership and Civil Society in the Sample Villages 89 Appendix 6. Planning in the Sample Villages 90 Appendix 7. Development Planning in the Villages 93 Appendix 8. Policies, Programs and other Initiatives to Promote Integration 95 Appendix 9. Report on the Observation of a MDKP Meeting in Banyuono Village EXECUTIVE SUMMARY Introduction In 2007, the government rolled out the national community empowerment program Program Nasional Pemberdayaan Masyarakat (PNPM) as the umbrella for government empowerment programs. This umbrella program was needed because the various existing empowerment programs had not been well coordinated. Since then, the growing popularity of empowerment programs has prompted various actors to create their own empowerment programs. As of 2012, empowerment programs under the PNPM Mandiri banner alone numbered thirteen. Growth in the number of empowerment programs was also driven by donors, local government, non-governmental organizations (NGOs) and even the private sector. In the regions, empowerment programs gained in popularity, prompting many local governments to adopt an empowerment strategy in their efforts to build their regions. However, there were concerns that this proliferation of empowerment programs would give rise to problems such as overlapping, coordination difficulties, inefficiencies, and so on. In response, efforts have been made to integrate these empowerment programs into regular development programs. To identify the benefits and costs of integration and integration practices in the regions, SMERU Research Institute with support from PNPM Support Facility (PSF) conducted a qualitative study of the integration of empowerment programs in the regions. This was an exploratory study to identify what initiatives have been adopted in the regions to deal with the problems that arise from empowerment programs proliferation. This study was conducted in 18 villages in six districts in three provinces (Central Java, West Nusa Tenggara, and South Sulawesi). In general, the research locations were selected with the aim of looking at regions where implementation of empowerment programs was considered good and there were initiatives to integrate empowerment programs, and at regions where implementation of empowerment programs and initiatives to integrate empowerment programs were lacking. Data and information were collected using focus group discussions (FGD), in-depth interviews, observations, and from relevant documents. EXECUTIVE SUMMARY VII Characteristics of the Sample In essence, some informants and respondents felt Villages that the benefits of proliferation outweighed its costs. The greatest benefits to villagers were the Most of the villages selected for the research are availability of additional facilities and improved agricultural areas, with varying levels of access. The quality of public services, followed by improved majority of residents in these villages earn a living from access (transport) and increased incomes, evenly farming. Most of the villages are situated fairly close distributed development, availability of capital to the subdistrict capital: the closest being 0 km and and more business opportunities, and improved the farthest, 60 km away. The condition of the village local community and village government roads varies. In half of the sample locations (9 villages) capacities. The greatest costs to villagers were less than 50%of the village roads could be described as time and energy spent, the cost of clearing land, being in good condition (asphalt or reinforced concrete financial subscriptions, and the costs of program surfaces), and of the remainder, at most 70% of village consolidation and monitoring. roads had asphalt or reinforced concrete surfaces. The participation of women and minority groups In terms of basic education and health facilities, on as program beneficiaries is high. In fact, women average, the villages have better education facilities and minority groups are the main target of many than health service facilities. Three villages have only programs. In the various meeting activities, women's one primary school, and only two villages have no attendance is high; higher even than that of men junior secondary school or equivalent. The remainder in some activities. However, this high level of has between two and six primary schools and at least participation as beneficiaries is not accompanied by one junior secondary school or equivalent. Eight of the a high level of participation in program management. villages have senior secondary schools. A minority (two) This indicates that empowerment programs have of the villages has primary health centers; several of not been able to change the position of poor/ the others have village birthing clinics, auxiliary primary marginalized people from being beneficiaries to health centers or village health centers. Fewer than half being active participants in empowerment activities. (eight) of the sample villages are categorized as poor. Among the sample villages, the highest poverty rate was 2. Integration Concepts and Initiatives in the Districts 36% and the lowest was 8% (based on PPLS 2011 data)'. The concept of integration defined by government Key Findings focuses on initiatives that advocate one village, one plan. To this end, government advocates 1. Benefits and Costs of Program Proliferation that the Village Medium Term Development Plan (Rencana Pembangunan Jangka Menengah Desa - The number of empowerment programs in the RPJMDes) be the only development plan referred sample villages in the past three years (2009-2012) to in the village, both by regular programs and varied. The highest number was 12 programs, and temporary programs. However, Program Nasional the lowest, three. In the same period, most villages Pemberdayaan Masyarakat Mandiri Perdesaan had seven programs running consecutively, and (PNPM MP) aside, no programs are impelled to refer fewest had one. to the village medium term development plan. The empowerment programs in the villages differed in objectives, target beneficiaries, and funding sources. In terms of objectives, some empowerment programs focused on infrastructure development, micro credit and in-kind aid, while others focused on support. PPLS (Pendataan Program Perlindun gac Sosiaat, Social Protection Program Data Collection) is conwducted o Statistic Indonesia in 2011 to provide unified database on poor households tnaf are entitled for social protection programs. VIII EXECUTIVE SUMMARY The existing concept of integration needs to be The development planning process at the village revised by requiring, through formal regulations, level in general proceeds according to the technical that all empowerment programs, whether funded guidelines for implementing village development by government or non-governmental sources, refer planning meetings published by the Ministry to the village medium term development plan. of Home Affairs. However, there were variations Also, political planning by local parliaments needs between the villages as to the year implementation to be impelled to refer to the village medium term started, the degree of openness (for all villagers or development plans. just for delegates), number of participants, and level of brainstorming of ideas (RT/hamlet/village). In addition to policy designs from national government, there are many initiatives at the Information from the FGD participants indicated district level that aim towards development that the majority of village medium term integration in villages. These initiatives take the development plans do not accommodate all major form, among others, of designing regulations village problems. This means that as well as there that strengthen village planning and encourage being new problems that develop after the village coordination and collaboration between programs, medium term development plan has been finalized, and designing programs to build the capacity of the dynamics of the village planning meetings are village communities in planning. not always responsive to the community's needs. Integration initiatives at the district level are In most villages, the village medium term influenced by various factors: local leadership, local development plan is the sole reference for the institutions, and local civil society advocacy. The activity planning of incoming empowerment leadership factor is reflected mainly in the vision and programs. Programs that do not refer to the village commitment of the district head and the knowledge medium term development plan for the most part and performance of the heads of district government come from private companies (through corporate agencies in community empowerment and ways of social responsibility or CSR schemes) or are programs improving its effectiveness. The institutional factor unexpectedly offered by ministries. However, the way is reflected in the existence of regulations and in which programs refer to the village medium term institutions that are able to facilitate integration, development plan differs from village to village. In or vice versa. Civil society advocacy is reflected in some villages, all planning activities are integrated the existence of NGOs, community organizations into the regular planning process, while in other or other associations that are concerned with villages there are empowerment programs that do and committed to increasing the effectiveness of their planning outside the regular planning process. community empowerment. In addition, in some cases it is not program planning that refers to the village medium term development 3. Integrated Development in the Villages plan, but the other way round - the village medium term development plan is amended to accommodate All the sample villages where PNPM MP is present incoming program plans. have village medium term development plans. One village that did not have PNPM MP but Several best practices in program integration in did have PNPM PISEW (PNPM Pengembangan villages were identified. These include: Infrastruktur Sosial-Ekonomi Wilayah) only had a Village Development Work Plan (Rencana Kerja a) Dividing up work schedules between programs, Pembangunan Desa - RKPDes). Villages that had for example the agreement between PNPM PNPM MP also received support and technical Generasi and NICE in Lombok Tengah not to assistance from PNPM MP facilitators in organizing distribute supplementary foods in the same development planning meetings (musrenbang) to location at the same time or close to; draft or revise village medium term development plans. Those villages that did not have PNPM MP did not receive similar support. EXECUTIVE SUMMARY IX b) Dividing up targets, i.e. not offering the same The greatest challenge to adopting integration is program benefits (for example loans) to the same harmonizing understanding of what integration is people, as in Lombok Timur and Barru; and what its benefits are. The problems of sectoral egoism and staff turnover, and village officials also c) Complementing one another to meet needs, interfere with coordination. for example the stimulant program (P2MP), which offers capital loans, and PNPM MP, which Conclusions and Recommendations provided the skills training that allows the borrowers to start up businesses, as in Barru; 1. Conclusions d) Having one person involved in the management In general, communities feel that the more of several programs to create synergy between empowerment programs, the greater the programs, as in Kebumen: benefits. These benefits include the opportunity to meet the village's main needs, increased e) Informal coordination between program managers availability of facilities and improved quality of to avoid overlapping; and services, improved access (transport), increased incomes, even distribution of development, f) Coordination among all program managers in the and increased access to capital and business village to intensify the role of village government opportunities. However, on the other hand, in program coordination and monitoring. program proliferation was also seen as a cost to the community. These costs include the large Several factors that promote integration between number of meetings villagers had to attend and programs in villages were identified. Internal factors the time, in-kind (land) and energy they had to are (i) having a program design that aims towards spend. integration with other programs, (ii) adjusting objectives and targets with other programs, and Proliferation is perceived by communities and (iii) socialization of the importance of integration to program actors (facilitators and village activity each program implementer and village government. implementation teams) to have increased External factors are (i) leadership of the village head, community capacity in program management. i.e. the extent of the village head's understanding of However, there is no grand design from and commitment to improving the effectiveness of these various programs to systematically and empowerment programs in the village, (ii) institutions synergistically/collaboratively build the capacity of in the village, i.e. whether or not there are values/ villagers in program management. procedures that encourage coordination and integration, and (iii) having community figures or Integration between empowerment programs is groups in the village who influence people's concern not done systematically, except in a handful of for program implementation and effectiveness. cases, such as in two programs in Barru district (between the ADD program and Prima Kesehatan, Integration is considered beneficial in terms of which are both funded from the Barru district improving the effectiveness and efficiency of budget) in the development of health facilities the implementation of development in villages. and services. The benefits perceived include making village development planning more organized, lending certainty to budgeting, avoiding overlapping, and improving the accountability of regular programs. X EXECUTIVE SUMMARY * At the village level there are sporadic initiatives 2. Recommendations to synergize programs that have the same targets and beneficiaries. a. There is a need for adequate socialization to improve the understanding of program actors and * The general model of empowerment program communities about community empowerment integration in the sample villages is to have just integration. For programs under the PNPM one development plan per village. In this way, Mandiri umbrella, there is a need for explicitness empowerment programs no longer make their in program implementation guidelines to own development plans in the villages, but follow promote integration between PNPM programs in the plan produced by the community at the the same location. village development planning meeting. b. For horizontal integration, that is, integration * There are no initiatives at the district level that between ad hoc planning and regular planning, encourage actors at the village level to synergize the quality of village development planning by forming program implementing organizations/ meetings needs to be improved in order to institutions at the village level. This is due to improve the quality of the village medium term the lack of awareness of the importance of such development plan as the main reference for initiatives. development planning in the villages. For this: * Some of the internal factors enabling 1. The Ministry of Home Affairs needs reinforce empowerment program integration are: program the rules about village development planning design that is directed towards integration, which meetings and drafting of village medium term takes the form of program technical operating development plans, tying them to clear rewards procedures, which are then communicated to all and punishments so that all development stakeholders. programs offered to villages refer to the village medium term development plan. There are also external factors, including having regulations and institutions/forums that promote 2. The Ministry of Home Affairs needs to and facilitate integration or collaboration intensify and expand socialization of program between programs; having initiatives to build integration to stakeholders, from national to the quality of village medium term development village level. plans; having a district head and village heads who understand - and are committed to - c. Although the facts in the field indicate that integration; having civil society groups (NGOs communities are able to coordinate activities and community leaders in the village) who have from various programs at village level, the knowledge of - and commitment to - improving results would be far more effective if there were the effectiveness of village development planning consolidation of community empowerment and implementation of empowerment programs; systems to create a single system for budgeting, and having the commitment of national and local reporting and accountability. government. EXECUTIVE SUMMARY XI d. For vertical integration, that is, integration between district technocratic planning (of the regional government work units) and village participatory planning - the following are necessary: 1. Districts facilitate village planning so it can answer the needs of the district and the needs of the villages. This can only be done if it can be ensured beforehand that the process is genuinely participatory and not just something that is done to "harmonize" village planning with the wishes of the districts. To do this, regional government work units could visit the villages to explain their strategic plans (not their work plans). The involvement of community organizations and/or NGOs is vital to ensuring the quality of this participatory process. 2. For emergency/urgent needs that are not accommodated in the village medium term development plan/village development work plan, national government and provincial/ district government need to be open to the possibility of having block grants for open menu use by communities. However, it is crucial to ensure that there is a clear accountability process to ensure completely transparent financial and activity accountability. leg QUALITATIVE STUDY OF THE PROLIFERATION AND INTEGRATION OF COMMUNITY EMPOWERMENT PROGRAMS 1. INTRODUCTION 嫵 劉 ’斗酌酌爍州哺，,,，謬r 面面面嚇 INTRODUCTION 1.1 Background Empowerment in generic terms is the product of a new social movement. Although there are many opinions as to its definition and characteristics, most experts agree that the origins of empowerment as we now know it can be traced back to the ideas of Paulo Friere on popular education and of the feminist movement. (Luttrell, et al., 2009:2). Both emerged and developed in the 1960s, which means that the concept of empowerment is relatively new. As to the definition of empowerment, these are many and varied. The debate over the definition of empowerment aside, Deepa Narayan from the World Bank devised a definition of empowerment in the context of poverty alleviation as "...the expansion of assets and capabilities of poor people to participate in, negotiate with, influence, control, and hold accountable institutions that affect their lives, (Narayan, 2002:14). Further, Narayan identified that of the many empowerment concepts adopted in activities/programs/projects, the most successful In general were those that included the following components: (1) expanding information access, (ii) promoting inclusion and participation, (iii) promoting accountability, and (iv) strengthening the capacities of 1111111020whk local organizations. Using the above definition as a guide, in this report, a program is considered empowering if, in general, it aims to build the assets (in the broad sense) and capacities of poor people and minorities, using primarily (but not limited to) the methods listed above. In Indonesia, community empowerment programs are very popular. The popularity of empowerment programs first began in the 1990s, when the government launched the Inpres Desa Tertinggal (IDT) Program. Although there was much criticism of this program (Molyneaux and Getler, 1999; Alatas, 2000; Suryadharma and Yamauchi, 2013), it was very popular at the time because of its new approach, wide scope, and direct benefits to households and communities. At the end of the 1990s, when Indonesia was plunged into a monetary crisis, the IDT Program ended and was followed by other programs that were developed from the IDT Program. These programs included, among many other empowerment programs, Program Pembangunan Prasarana Pendukung Desa 4 INTRODUCTION Tertinggal (P3DT), Program Pengembangan Kecamatan 3. PNPM Pariwisata (Tourism), which is managed by the (PPK) and Program Penanggulangan Kemiskinan Ministry of Tourism and Creative Economy: Perkotaan (P2KP). Then, in 2007, the government took the initiative to integrate all these empowerment 4. PNPM Permukiman (Housing), which is managed by programs into one umbrella program called Program the Ministry for Public Housing; Nasional Pemberdayaan Masyarakat (PNPM) Mandiri. When this merger took place, PNPM Mandiri was 5. Generasi Sehat Cerdas (PNPM Generasi), which is a divided into two program categories - PNPM Inti and program to improve maternal and child health and PNPM Penguatan. Basically, PNPM Inti has a regional family education that is managed by the Directorate approach that is expected to be able to build systems, General of Community and Village Empowerment, processes and procedures, and become a forum for Ministry of Home Affairs, with grants from the community empowerment in every village. PNPM Inti Australian Agency for International Development includes: (AusAID) and the multi-donor PNPM Support Facility (PSF); a. PNPM MP (PNPM for rural areas), which is managed by the Ministry of Home Affairs, 6. PNPM Hijau (Green KDP), which is an addition in PNPM-Pedesaan locations, which is managed by b. PNPM Perkotaan (PNPM for urban areas), which is the Directorate General of Community and Village managed by the Ministry of Public Works, Empowerment, Ministry of Home Affairs, with funding support from PSF; c. Program Infrastruktur Sosial Ekonomi Wilayah (Local Economic and Social Infrastructure Program) (PNPM 7. PNPM Peduli, a program for vulnerable communities, PISEW), which is managed by the Ministry of Public such as victims of trafficking, commercial sex workers, Works, transgender people, orphaned children, widows who are household heads, diffabled people, remote d. Program Pembangunan Daerah Khusus dan indigenous communities, people living with HIV/ Tertinggal (Development of Special and AIDs, people living with leprosy, drug addicts, and Disadvantaged Regions Program) (PNPM P2DTK), other minority groups, that is managed by selected which is managed by the Ministry for Development non-governmental organizations (NGOs) and funded of Disadvantaged Regions, and by PSF; and e. Program Pengembangan Infrastruktur Perdesaan 8. PNPM Integrasi (P2SPP), which is managed by the (Rural Infrastructure Development Program) (PNPM Ministry of Home Affairs. PPIP), which is managed by the Ministry of Public Works. Program under the PNPM are not the only ones to have proliferated; programs of the community- PNPM Penguatan takes a sectoral approach that is driven development (CDD) type at the national and expected to be able to provide empowerment to local level have also emerged. Examples are the particular sectors in regions where PNPM Inti has been Australian Community Development and Civil Society implemented. Since its launch in 2007, this sectoral Strengthening Scheme (ACCESS, AusAID) and Nutrition PNPM has proliferated and there are now a total of Improvement through Community Empowerment (NICE, eight programs. PNPM Penguataan includes, among Asian Development Bank/ADB) at the national level, others: and programs at the regional level that are funded from regional budgets, such as Simantri in Bali, BahteramaS3 1. Pengembangan Usaha Agribisnis Perdesaan in Southeast Sulawesi, and Program Pemberdayaan (Development of Rural Agribusiness) (PNPM PUAP), Desa in Riau. In fact, nearly every province has at least which is managed by the Ministry of Agriculture; one regional program that is funded by provincial or district/municipal government. 2. Kelautan dan Perikanan (Marine and Fisheries) (PNPM KP), which is managed by the Ministry of The proliferation of empowerment programs as Marine Affairs and Fisheries; described above has brought many benefits to the beneficiary communities. These benefits could be the resources to meet major development Sistem Pertanian Terintegrasi (Integrated Agriculture Systems) Membangun Kesejahteraan Masyarakat (Building Community Welfare) INTRODUCTION 5 needs, creation of jobs, and the growing number However, in several regions there were indications of of activities that accommodate public participation integration/collaboration in the implementation of thereby indirectly expanding and increasing their activities/projects at the community level, for example capacities. More programs also means that more in West Nusa Tenggara. Several programs, such as community organizations are needed to support their PNPM M, PNPM Generasi, ACCESS and NICE, worked implementation. And this means that more people together to identify needs and synergize efforts to have the opportunity to participate in program/project avoid duplication and waste of resources. Also, at the implementation teams. This helps to reduce the community level itself, some implementation teams dominance of elite groups in community development and program cadre shared information about their by providing alternative institutions for other members respective programs. Sometimes they even made of the community to express their needs (Dasgupta and decisions together about who should be nominated as Beard, 2007). cadre/implementers for certain programs. Integrated planning between program planning and the regular On the other hand, the proliferation of community planning process (village development planning forum) empowerment programs has also given rise to some also occurred in several villages, although ensuring problems related to coordination and synergy, such as that the outputs of participatory planning (the village duplication of effort, confusion among communities medium-term development plan) proceeded to the and implementers, complex administration, inefficient planning process at the higher, subdistrict and district, management of resources, and ineffective handling levels was still problematic. Other success stories in of poverty issues. Several initial evaluations of CDD integrated planning were also found in other regions as programs, in particular of rural infrastructure and micro- well as West Nusa Tenggara, such as Batanghari (Jambi), credit programs, indicate that confusion and duplication Sumedang (West Java), and Kebumen (Central Java). do occur. Some regions received several similar programs, while others did not receive any. These Based on the background to the problem described programs offered the same benefits/support to the above, SMERU Research Institute, with support from same targets/beneficiaries, resulting in duplication and PNPM Support Facility (PSF), carried out a study to a waste of resources. Communities were often confused assess the impacts of the proliferation of empowerment by the different procedures and standards that are programs on the effectiveness of community driven applied by the different programs, including differences poverty alleviation programs and to understand in implementation mechanisms and procurement or how coordination and integration happened at the reporting procedures. community level. The results of this study will be used to provide inputs to the Indonesian government in So, the Indonesian government issued a presidential designing an integration strategy for community driven instruction to make a plan to integrate all CDD poverty alleviation programs. programs into PNPM (Presidential Instruction 1/2010). Also, the government issued another presidential instruction to integrate CDD program planning into the medium-term development planning process at the village level, a process known in Indonesia as musrenbangdess ("one village, one plan"). The purpose of this presidential instruction was to ensure that participatory planning processes at the village/ community level were integrated in to the existing development planning process (Presidential Instruction 3/2010). A year after this presidential instruction was issued, findings from PNPM supervision activities undertaken by PSF indicated that despite continuous focus on program integration at the national level, integration was still not happening in the field. This was due to a lack of coordination between implementing agencies, lack of interest in supporting integration efforts, continued problems with program plans, and vague integration procedu res/mechan isms. As examples, see mhe LPES and MICRA evaluation reports on several CWD Nnfrasurscre and micro-credi t programs ,2007). Musyawarah peretcanaan pembangtanh desa or iefage ndevelopmeet plaaning forum 6 INTRODUCTION 1.2 Objectives The study objectives are to: > Are the mechanisms that have been developed able to address the issue of local government * understand the impacts of the proliferation of participation or other problems that arise in the empowerment programs on the effectiveness of community? community driven poverty alleviation programs and community management capacities; > What kind of information has been provided about the mechanisms devised for designing an * analyze the implementation of various efforts to integrated community driven poverty alleviation coordinate and integrate community driven poverty program? alleviation programs at the community level; and c. What factors enabled and disabled integration! * learn lessons that can be used as preliminary input collaboration between programs? for designing strategies for integrating community driven poverty alleviation programs. > What external and internal factors enabled integration? Do existing mechanisms, procedures, This study aims to answer these key questions: and program management enable good coordination/collaboration between PNPIM a. Has the proliferation of community driven programs or between different programs? development programs create opportunities or costs for communities? > What existing facilitation mechanisms enable the integration of empowerment programs? Do > Have the costs of learning and operating program existing program facilitators enable capacity systems and procedures wasted the time and building and empowerment of community resources of communities? implementation teams? Has program proliferation been able to build the > What factors disable integration? What kind of capacity of communities to manage their own framework changes are needed to better enable development activities, engage government more integration of empowerment programs and effectively, and find additional funds to finance empowerment of community organizations or new projects? teams? Do women and minorities receive program In terms of integration, this study looked at the benefits, or does their condition deteriorate? enabling/disabling factors, which are as follows: >What is the role of elite groups (increased/ a. Enabling decreased domination of elite groups) and the participation of other community groups in 1. Having local championS6 among the program decision making? actors to enhance cooperation and collaboration between programs/projects b. What program proliferation strategies do communities adopt? 2. The willingness of local government to promote cooperation between programs/projects in >What decision making mechanisms have been the interests of village/ward development and designed that can be implemented across empowerment projects? What about the formation of existing village/ward organizations/teams? >Mouiwaors and champions in ntegration of emporterment programs that can he used as an eample y other people or reions that wish to encourage this integration, INTRODUCTION 7 1.3 Methodology 3. (Formal and informal) forums to promote dialog This study used a qualitative methodology in locations between program actors that were selected based on certain criteria, such as information about the number, variety and performance 4. Regional regulations that promote coordination of empowerment programs; the level of public welfare; between programs and the existence of enabling or disabling indicators, as described above. This study visited locations that 5. Flexible program mechanisms that provide space had empowerment programs: (i) implemented by for cooperation with other programs/projects national government (under the PNPM Mandiri or other umbrella) or local government; (ii) at the provincial 6. Community capacity to take a larger role in and district/municipal level; and (iii) implemented by decision-making processes external organizations, including donor agencies (such as ACCESS), private companies (through corporate b. Disabling social responsibility or CSR programs), and NGOs. 1. Reluctance on the part of program actors to share 1.3.1. Data collection methods information and talk to other programs The following data collection methods were used. 2. Reluctance on the part of local government to facilitate coordination and cooperation due 1. Mapping and direct observations to conflict of interest, negative perceptions of integration, and other disincentives The research team visited sample villages to observe first-hand the implementation of integration programs 3. The lack of a cooperation platform, such as a and initiatives, and map programs that were underway, forum or government coordination body their implementation mechanisms, organizations in the village, and local governments that were managing 4. The lack of local regulations that promote program integration/coordination/implementation. The integration, or, conversely, the presence of research team collected and then analyzed data on the: regulations that do not promote integration b number and type of programs/projects; 5. Inflexible program SoPs/mechanisms that make program actors avoid cooperating with other 0 objectives/outputs of each program; programs/projects 2 program/project implementation team (in particular 6. Low community capacity to promote coordination to analyze whether the people involved in the various between projects projects represented the same group of people); f program/project implementation mechanisms (mapping the different project implementation mechanisms/procedures/actors); v local groups or institutions (in and outside the program); 4 local government regulations relevant to project implementation and coordination; and * inter-project activities (for example, join activities such as meetings/forums or cooperation in infrastructure development being carried out by several different projects). 8 INTRODUCTION 2. Interviews with key informants Middle to upper classes. The aim of these FGD was to obtain information about the general The research team interviewed the following key knowledge the community had about the informants: programs in their village. They also sought to gather information about the benefits/problems 1. At the district and subdistrict level: program experienced with the proliferation of programs stakeholders, Regional Poverty Alleviation and the opportunities/constraints to participate in Coordination Team, Regional Development program implementation teams. Planning Agency, Inter-Village Cooperation Agency, program implementation teams (for Poor and minority women's groups and men's example, activity management units), program groups. The aims of these FGD were the same management teams (for example, provincial as the FGD above but more specific, that is, coordinator), program facilitators (district to explore poor and minority communities' facilitators, subdistrict facilitators, and so on). understanding and experience of these programs in their villages and their benefits. 2. At the village level: village heads, Badan Permusyawaratan Desa (BPD) members;7 4. Collection of secondary data community leaders, such as hamlet heads, teachers and religious leaders; program The research team collected relevant data, such implementation teams; and village/ward as secondary village data (plans, regulations, facilitators/cadres; monographies), program documents, implementation manuals, and current regulations From these various informants, the research team (national and regional), to obtain information extracted information about the number of programs about project design (in particular implementation that were in progress, the objectives of each of the mechanism) and regulations enabling/disabling programs and their implementation mechanisms, integration. The research team also collected and the pros and cons of having various programs in one analyzed the results of other studies/evaluations, region, opinions/views about integrating programs, where relevant, to learn lessons and to better efforts towards program integration, and factors understand practices. enabling/disabling integration/coordination. 1.3.2 Study Locations 3. Focus group discussions This study was conducted in 18 villages/wards in 9 subdistricts of 6 districts in 3 provinces. The three The research team held focus group discussions provinces were: Central Java (Kebumen District and (FGD) with the following groups: Blora District), (ii) West Nusa Tenggara (Lombok Tengah District and Lombok Timur District), and (iii) South Program management teams, at the district level Sulawesi (Luwu Timur District and Barru District). (government and program constituents) and the village level, from various programs. These FGD These three provinces were deliberately chosen aimed to look at the problems associated with to represent the different geographical areas and coordination of empowerment programs at the programs, and the different types of integration. These district/village level, and to identify the level of three provinces also represent areas that may be maturity of each of the implementation teams, selected as program locations using the criteria rich/ and their readiness to independently manage poor and remote/normal. development activities in their respective regions. aBPD ns Vaage Ctnsuhtatihe Body, or s d/lage coenvul INTRODUCTION 9 Based on the type of program integration, two districts In selecting districts that have good/poor integration, were selected in each province (one district with good the research team sought key informants at national integration and one district with poor integration). level to ask for their professional opinions based on From each district, two subdistricts were selected the established criteria. In selecting the subdistricts based on type of integration (good and poor). From and villages that good/poor integration, the following each subdistrict, two villages/wards of different types indicators were used: (access to subdistrict capital, poverty rate, human resource capacities, and other criteria) were selected 1. having 'best' villages in the subdistrict, through consultation with project/program facilitators/ implementation teams. Selection of the locations also 2. existence and quality of village medium-term made use of secondary data in the form of information development plans, about the rewards received by the respective locations for categories related to integration (planning, 3. awards for development planning implementation or participatory planning, poverty alleviation coordination). empowerment program implementation, and This was done to get a better picture of the factors that influence integration (see Table 1 for location selection 4. level of community participation. matrix). Armed with these criteria, the research team conducted For districts with poor integration, one village with the interviews to ask for the professional opinions of the best integration and another village with typically poor informants about potential sample locations, and integration were selected. Each village was in a different collected secondary data to support the information subdistrict. gathered from the key informants. Based on these criteria, it was agreed that the following study locations The criteria for a district with good integration were: would be used: a. has policy instruments in the form of regulations that encourage those involved in programs (government, program implementation teams, and communities) to coordinate and collaborate in running programs (planning, implementation, institutions, data collection, monitoring and evaluation); b. has strong leadership that is able to promote coordination between actors involved in various programs; c. has strong support from civil society that is reflected in their participation in activities/programs that promote integration; and d. has won particular awards for community empowerment program implementation. 10 INTRODUCTION Table 1. Study Location No. Province District Subdistrict Village District Integration between PNPM MP and Regular Development Mechanisms I. Central Java 1. Kebumen Subdistrict with the best Remote village with the best integration: integration: Sruweng Sarimakmur Nearby village with best integration: Purworupo Subdistrict with poor Village with the best integration: Gayamulya integration: Gayamulya Village with poor integration: Banyuono 2. Blora Subdistrict with the best Village with best integration: Bandungan Village integration: Ngawen with the best integration: Bandungan Subdistrict with poor Village with poor integration: Sambit integration: Japah District Integration between all PNPM and Regular Development Mechanisms II. West Nusa Tenggara 3. Lombok Tengah Subdistrict with the best Remote village with the best integration: Lalandu integration: Praya Timur Nearby village with the best integration: Sukapura Subdistrict with poor Remote village with poor integration: Nusaindah integration: Praya Barat Daya Nearby village with poor integration: Daratan 4. Lombok Timur Subdistrict with the best Village with the best integration: Lombokjaya integration: Suela Subdistrict with poor Village with poor integration: Panjang integration: Sembalun District Integration between CDD and Regular Development Mechanisms Ill. South Sulawesi 5. Luwu Timur Subdistrict with the best Remote village with the best integration: Barujaya integration: Mangkutana Nearby village with the best integration: Sukasari Subdistrict with poor Remote village with poor integration: Panaipanai integration: Wasuponda Nearby village with poor integration: Randu 6. Barru Subdistrict with the best Village with the best integration: Galunggung integration: Barru Subdistrict with poor Village with poor integration: Kenari integration: Balusu INTRODUCTION 11 1.4 Profile the Research 1.3.3 Field Conditions Locations In selecting the study locations, although there had As described in the section on the methodology used been intensive consultation with actors at the national to select the sample areas, the villages chosen as the level (National Development Planning Agency, National research locations were selected based on various Poverty Alleviation Acceleration Team, Community and criteria. In terms of program integration, the villages Village Empowerment Department - Ministry of Home selected for the research were divided into villages with Affairs, Coordinating Ministry of People's Welfare, and good integration and villages with poor integration. PSF) and the regional level (program coordinators Also, in terms of geographical distance, these villages at provincial and district level), and other relevant were also categorized as villages close to the subdistrict informants, there were initial differences in selected capital (nearby villages) and villages far away from districts and sampling framework. Research in the field the subdistrict villages (remote villages). In terms of found that Barru District (which was initially selected welfare, villages in the subdistrict that were considered as a district with poor integration) actually had good to have good integration were divided into poor and integration and had various innovations that promoted non-poor. These variations are considered to affect integration. The field work concluded that Barru District the performance of program implementation. As an in fact had better integration than Luwu Timur District, example, villages that are far away from the subdistrict which was initially selected as the district with the capital typically have poor basic infrastructure. This best integration. On the contrary, Luwu Timur District generally influences the residents' choices from was selected as the district with the best integration the development menu in the village: in general, following consultation with the South Sulawesi Province empowerment program activities focus on infrastructure PNPM MP coordinator and the PSF field team in provision and improvement, and very few focus on Sulawesi.8 training and capacity building for the community. In poor villages, because the community's human 1.3.4 Research Schedule and resources are typically poor, the elites may be more Research Team dominant than they are in villages that are better off. Preparations for the research began in August 2012, and the field research was conducted in September- November 2013. The study was finalized in September 2013. This study was carried out by a research team from SMERw a Research Institute led by Muhammad Syukri, with team members Hastuti, Akhmadi, Kartawijaya, Asep Kurniawan, Sri Wahyuni, Dyan Widyaningsih, and Lina Rozana, and with Sulton Mawardi (senior researcher at SMERTr Research Institute) as research advisor. The research was under the supervision of Dr. Asep Suryahadi, Director SMERUo Research Institute. In each province, the research team was assisted by selected local researchers. According to tne Informants, the district with the test integration was Baneng, and then Lawu Timur. However the research team selected Lul e Timur because, as well as being one ofethe districts with the best p ategrarion, it had also been chosen one of the 'best'oby the media, includirg Tempo magazine the Lawu Timr district head was on Tempos st ofbest leaders) and the South Sulawesi journalists' association. Barru bistrict was not recommended by several informants because oftne problems this district had implementing PNPM between 20t09 and 2011. According to the informationsa Barru bnsdrict Government dld not sappor PNPM. Thls was indicated by the fact that there was so bans baerah rusan Bersama or DDeaB funding, which means that the program could nor be Implemented. And in 2010-2011, PNPM withdrew its distcict facilitator from Lawn Tir. 12 INTRODUCTION Table 2. Profile of the Research Locations Population Condition of Basic Infrastructure in poorest Distance to Village Population 10% (Program Subdistrict Sosial/P PILS Capital Village Roads Education Health Data 2011) Sarimakmur 5.552 jlwa 2.030 (36%) 5,32 km 75% concrete 2 TKb/RA,, 4 SDI, 7 posyandul, 1 village midwife, (1.487 HH-) 1 MTsN, 2 trained traditional midwives Purworupo 1.854 289(15%) 3 km 80% asphalt TK, SDNq, MI1, SMKi Gayamulya 5.108 1.381 (27%) 0 km 70% asphalt 1 TK, 5 SD, 1 SMP, 1 puskeSMaSk, 1 pusling', (1.358 HH) 1 PAUDI 1 clinic, 2 paramedics, 2 doctors, 1 midwife, 8 posyandu Banyuono 2.850 701 (24%) 14 km 60% PAUD, SD posyandu (550 HH) Lalandu 3.105 730(23%) 10 km 25% asphalt 3 PAUD, 4 SD, 1 MI, 1 poskesdesP, 4 posyandu (1.115 HH) 1 SMP Satapm, 1 MTsn, 1 MAo Sukapura 4.173 867 (21%) 1,5 km 20% asphalt SD, MTs, MA, SMUq 1 polindes', 9 posyandu (1.119 HH) (Total: 7) Nusaindah 4.787 900(19%) 10 km 20% asphalt 6 SD/MI, 1 MTs, 1 polindes, 10 posyandu (1.693 HH) 1 SMA, Daratan 8.773 1.599 (18%) 500 m 60% asphalt 2 TK, 6 SD, 1 SMPI, 1 puskesmas, 10 posyandu (2.591 HH) 1 SMA Sukasari 2.726 246 (9%) + 2 km 40% asphalt 2 TK, 3 SD, 2 SMP, 1 poskesdes, posyandu (650 HH) 2 SMA Barujaya 3.339 285 (8%) 6 km 70% asphalt 1 TK, 1 SD 1 polindes, midwife, posyandu Randu 2.525 209 (8%) 2 km 60% 2 SD, 1 SMA 1 pustu', 1 PT Inco clinic (630 HH) Panaipanai 3.762 680(18%) 60 km 30% 5 TK, 4 SD, 1 SLTP,, 1 poskesdes, 1 pustu (751 HH) 1 SLTA- Kenari 2.648 215 (8%) 5 km 70% asphalt 1 SD 1 puskesdesx, 4 posyandu (675 HH) Galunggung 2.297 240 (10%) 13 km 50% 2 SD, 1 SMP 1 puskesdes, posyandu (458 HH) Sambit 1.491 373 (25%) 3 km 30% PAUD, 1 SD midwive, posyandu (502 HH) Bandungan 2.183 567 (26%) 11 km 65% asphalt 2 TK, 1 MI, 1 SD, 1 polindes (511 HH) 1 SLTP Lombokjaya 4.241 1.082 (25%) 4 km 60% asphalt 3 SD, 1 SLTP 1 pustu (1.501 HH) Panjang 3.900 599(15%) 9km 40% asphalt 1 SD, 1 MTs 5 posyandu, 2 polindes, (930 HH) 1 pustu Source: Adapted from interviews, village documents, and PPLS 2011 data. INTRODUCTION 13 'HH: house holds The topography of the villages selected as the research bTK: kindergarten locations was also varied. Nine villages are located in cRA: islamic kindergarten upland areas, one in a coastal area, and eight in lowland 'SD: primary school or close to urban areas. In terms of distance, the villages eMTsN: state Islamic junior secondary school selected as the research locations in Luwu Timur fPosyandu: integrated health post were the furthest from the district capital, because 9SDN: state primary school the villages in this district cover large geographical hMI: Islamic primary school areas. As an example, one of the villages in this district SMK: vocational secondary school (Panaipanai) covers an area of 60 km2. The geographical -PAUD: early learning center area of the other villages varied, but all were less than 'Puskesmas: primary health center 10 km2. Despite the distances between the villages and Pusling: mobile primary health center between the villages and the subdistrict capital and nSMP Satap: joint primary and junior secondary school district capital, the roads in the four villages in Luwu nMTs: Islamic junior secondary school Timur were in good repair. Unlike Lombok Tengah, oMA: Islamic senior secondary school where the roads in the three villages that were selected PPoskesdes: village health post as research locations are in a poor condition, and one is qSMU: public secondary school in the middle of being repaired. In Kebumen, Lombok rPolindes: village birthing clinic Timur and Barru, the roads between the villages were in 'SMA: senior secondary school good repai although some were paved with concrete 'SMP: junior secondary school rather than asphalt. uPustu: auxiliary primary health center 'SLTP: junior secondary school The education infrastructure was good in most of the -SLTA: senior secondary school villages. With the exception of two villages (Kenari in xPuskesdes: village health center Barru and Panjang in Lombok Timur), all the villages 'SMA: senior secondary school selected as the research locations had more than 'SMP: junior secondary school one primary school. Most of the villages close to the uPustu: supporting primary health center subdistrict capitals had more than three primary schools 'SLTP: junior high school and one junior secondary (or equivalent) school, and wSLTA: senior high school some even had secondary (or equivalent) schools. Most 'Puskesdles: village health center of the villages also had health centers. The villages close to, or in, subdistrict capitals had primary health centers. As for water supply infrastructure, all the sample villages still relied on groundwater. Some villages had water supply problems, such as in some parts of Sarimakmur, during the dry season. However, one village in Lombok Timur (Panjang) was model village for community participation in water supply provision. The residents of this village, with support from the PISEW program, managed to build a 14 km water supply pipeline, the longest of its kind in West Nusa Tenggara. For this achievement, Panjang was awarded a prize for community participation and self-reliance. Another very common infrastructure problem in the sample villages was availability of bathing, washing and toilet facilities. Although in most villages, many 14 INTRODUCTION households have their own toilets, many others do not had institutions that were rather different from the and are forced to share their neighbors' toilets or use typical village institutions. As examples, Kenari and public toilets. In a small proportion of villages, open Galunggung (Barru District) had village development defecation was still common, such as in one village in planning facilitators. These are people who were Kebumen, where the villagers regarded this as a major selected to receive Participatory Rural Appraisal (PRA) problem for the village. technical training from the district Village Community Empowerment Agency (Badan Pernberdayaan In terms of welfare, some of the sample villages (8 out Masyarakat Desa or BPMD) to equip them to perform of 18) were poor. Initially, the research team attempted the task of facilitating brainstorming of ideas in the to gather poverty data on each village, but the data initial phase of the development planning process. available were not uniform. Some completed welfare data collected by the National Population and Family Some of the sample villages in the good integration Planning Agency, some used data on recipients of social category had won awards for participatory planning assistance (Raskin9, Jamkesmasio, Jamkesdall, and so (Sarimakmur, Purworupo, and Lombokjaya), village forth), and poverty data collected by local government. medium-term development planning (Sarimakmur and Due to the lack of comprehensive, uniform data, in this Purworupo), program administration (Purworupo) and report, PPLS data are used to identify which villages are so on. At the district level, some had been rewarded, poor and which are not. For this purpose, the research but others had been punished. The head of Luwu team used the PNPM Mandiri formula for identifying Timur district was Tempo magazine's top regional head poor villages: in 2010, and Luwu Timur district received an award from the South Sulawesi journalists' association for its % Poor population = I Poor population + very poor empowerment program. On the other hand, the same population (PPLS 2011) year, in Barru District PNPM was postponed (and the I Population (Podes12 2011) district PNPM facilitator withdrawn) as a punishment for delaying payment of DDUB funding. It was not until Using this formula, it was calculated that if 20% or 2011 that these funds were paid and the PNPM was able more of the 10% of the national poor population in the to recommence. PPLS data was in the village, it would be categorized as poor, and vice versa. Using this formula, eight (of the 18 sample) villages were categorized as poor. Of the 18 sample villages, Sarimakmur in Kebumen was home to the largest proportion of the 10% national poor population based on 2011 PPLS data, at 36% of the total population. The smallest proportion was in Barujaya and Randu villages in Luwu Timur. In general, the sample villages in South Sulawesi were better off than the sample village in Central Java and West Nusa Tenggaraa In terms of government, in general, each village had more or less the same structures and facilities, namely, a village executive body, BPD, and other supporting agencies/institutions. Each village had an average of three or four hamlets; each hamlet comprising several neighborhoods (rukun warga or RW); and each RW consisted of several sub-neighborhoods (rukun tetangga or RT). In some of the villages, such as Kenari in Barru District, the hamlet was the lowest level of government and there were no RW or RTS Some villages Beras untuk Kteluarga Miskrn (government subsidized rice for poor families) Jarcinaa Kesehatan woasyarakat acowmaniry health insurance) JaPrinan wesehatan paerah (regional health insurance) bPendataan Potensi Desa (village potentials data) QUALITATIVE STUDY OF THE PROLIFERATION AND INTEGRATION 15 OF COMMUNITY EMPOWERMENT PROGRAMS 1I. PROLIFERATION OF EMPOWERMENT PROGRAMS: BENEFITS AND COSTS - y S ( PROLIFERATION OF EMPOWERMENT PROGRAMS: 17 BENEFITS AND COSTS 2.1 Types of Empowerment Program in the Regions As explained in the Introduction, empowerment program is defined as development activities in the broad sense that aim to expand the assets and capabilities of poor people. Because of the current popularity of empowerment, in the research locations almost all programs that targeted the poor were regarded as empowerment. In the past three years . (2009-2012), according to the FGD participants, in each sample village there have been at least three community empowerment programs. And in some locations, there were as many as 12 such programs. In the same period, some villages had up to seven programs simultaneously, while others had just one. These community empowerment programs display a variety of models, targets, activities and funding sources. However, in this study, the empowerment programs that will be discussed are limited to those most common internationally, that is, programs that have features to expand information access, promote inclusion and participation, promote accountability, and strengthen the capacities of local organizations. Based on these criteria, information about the empowerment programs in the sample villages is shown in the table below. 18 PROLIFERATION OF EMPOWERMENT PROGRAMS: BENEFITS AND COSTS Table 3. Empowerment Programs in the Sample Villages Village Program Source Year Village Program Source Year PNPM MP APBN, 2010-2012 PNPM MP APBN 2010, 2011 Pamsimasb APBN PNPM Generasi APBN 2010 ADD, APBD 2 2010-2012 PNPM Integrasi APBN 2010 UP2Kd APBD 2 - NICE Donor (ADB) 2010 Lalandu APE, APBD 2 (ADD) 2012 (7 programs) PPIPf APBN 2011 P2KP APBN 2009 Planning Konsorsium LSM 2006- Support Sarimakmur (11 programs) SLPTT-UPKq APBN 2012 Graduate Village Unramh 2011 Development Scheme Gerhani APBN 2010 PNPM MP APBN 2010-2012 KBRJ APBD 2 Planning LSM Formasi 2010 PNPM Generasi APBN n/ak Support Developing APBD 1 2012 NICE Donor (ADB) 2011 Village PNPM MP APBN Lombokjaya PNPM Peduli APBN 2011, 2012 Purworupo P2KP APBN 2009 (9 programs) PUAP APBN (3 programs) ADD APBD 2 2010, 2011 New Trees Ornop 2008 Pemberdayaan PNPM MP APBN 2010-2012 KBR 2009 BUMDes' APBD 1 2011 PNPM Pariwisata APBN n/a PPIP APBN ADD APBD 2 n/a Pemberdayaan Graduates in APBN 2010 PNPM MP APBN n/a Villages Home Repair APBD 2 2012 PPIP APBN n/a Gayamulya KBR APBD 2 2011 PlK Paketn APBD 2 n/a (12 programs) BUMDes APBD 1 2011 PUAP APBN n/a Jidesm APBN 2011 Kenari (7 programs) Gerhan APBN 2011 Developing APBD 1 2010 Desa Siaga APBN n/a Village ADD APBD 2 2010-2012 Prima Kesehatan APBD 2 n/a TPKW (simpan- n/a 2010 BUMDes APBD n/a pinjam) PROLIFERATION OF EMPOWERMENT PROGRAMS: 19 BENEFITS AND COSTS Village Program Sumber Tahun Village Program Sumber Tahun PNPM MP APBN 2010-2012 Community CSR 2012 Development (Comdev) PLAN Ornop 2007-2012 P2MPo APBD 2 2010 PUAP APBN 2011 PNPM MP APBN 2010 Banyuono (7 programs) Desa Siaga APBN 2010 Mandiri Pangan APBN n/a Panaipanai KBR APBD 2 2011 (9 programs) PUAP APBN n/a ADD APBD 2 2010-2012 PPIP APBN 2009 Developing APBD 1, 2 2010 P2KP APBN 2012 Village PNPM MP APBN 2010-2012 SarbinaP APBD 1 n/a PPIP APBN 2011-2012 Gernas Kakaoq APBN n/a Parmsimas APBN 2009, 2011 PNPM MP APBN n/a Bandungan Developing APBD1, 2 2012 PPIP APBN n/a (7 Programs) Village ADD APBD2 2010-2012 Mandiri Pangan APBN n/a PUAP APBN 2009 Barujaya P2MP APBD 2 n/a Goat husbandary APBD 2 2012 (8 programs) PUAP APBN n/a PNPM MP APBN 2010-2012 P2KP APBN n/a ADD APBD 2 2010-2012 Gernas Kakao APBN n/a Sambit Desa Siaga APBN? n/a PNPM APBN n/a (5 programs) Pascakrisis PUAP APBN 2011 PNPM MP APBN 2010-2012 Developing APBD1, 2 2011-2012 PPIP APBN 2010 Village PNPM MP APBN 2009-2012 Mandiri Pangan APBN 2009-2012 PNPM Integrasi APBN 2012 Sukasari P2KP APBN PNPM Generasi APBN 2009 (8 programs) Stimulan (P2MP) APBD 2 2010-2012 Agriculture and APBN 2011 Lumbung husbandary Pangan Sukapura NICE Donor (ADB) 2010 Desa Paripurna APBD 2 2012 (9 programs) Saving Cattle APBN 2012 PUAP APBN n/a Food Security APBN 2011 Social APBN 2012 Restructuring PPIP APBN 2012 20 PROLIFERATION OF EMPOWERMENT PROGRAMS: BENEFITS AND COSTS Village Program Source Year Village Program Source Year PNPM MP APBN 2007-2012 PNPM MP APBN n/a PNPM Generasi APBN 2010-2012 Stimulan (P2MP) APBD 2 n/a Daratan (4 program) PNPM PPIP APBN 2011, 2012 Randu UPPKS, APBD 2 2011 PNPM Paska APBN 2010 (6 program) Comdev CSR Krisis PNPM MP APBN 2007-2012 PUAP APBN 2010 P2SPP, APBN 2008 Gernas Kakao APBN n/a PNPM Integrasi APBN 2011 Galunggung PNPM MP APBN n/a Nusaindah PNPM Generasi APBN 2010 (8 program) PPIP APBN n/a (8 program) NICE Donor (ADB) n/a P2KP APBN n/a Perukap n/a PUAP APBN 2010 WFP Ornop n/a Baruga Sayang, APBD 1 n/a Pemprov' APBD 1 n/a Prima Kesehatan APBD 2 2010 Panjang PNPM PISEW APBN 2008-2012 Jides APBD 1 n/a (8 program) PPIP APBN 2009 BUMDes APBD 2 2010 PUAP APBN 2011 s SSource: From FGD and interviews. Keserasian Sosial APBD 2 2011 Cow APBD 2 2011 procurement YMP Ornop 2009-2012 Bedah Desa APBD 1 2012 ADD APBD 2 2009-2012 Pemberdayaan 'APBN: state budget bPamsimas: community based sanitation and water supply scheme cADD: village allocated funds 'UP2K: household income improvement scheme eAPE: educational aids scheme PPIP: rural infrastructure development program 9SLPTT-UPK: integrated crop management field school- activity management unit hUnram: mataram university Gerhan: national forest and land rehabilitation scheme KBR: kebun bibit rakyat kn/a: not available smallholder estate BUMDes: village-owned enterprise nJides: village irrigation network ,PIK Paket: subdistrict information package oP2MP: rural empowerment program PSarbina: graduate advisors national movement to improve cocoa production and quality qGernas Kakao: family income improvement scheme rUPPKS: program to develop participatory development systems sP2SPP: program pengembangan sistem pembangunan partisipatif tPemprov: provincial government uBaruga Sayang: family advice and development service center PROLIFERATION OF EMPOWERMENT PROGRAMS: 21 BENEFITS AND COSTS In general, in terms of manager or funding source, these PNPM Pendukung programs in the study locations community empowerment programs can be divided include: into three categories: national government programs, local government programs, and NGO programs. In * PNPM Generasi, terms of activity, community empowerment programs can be categorized into programs focused on provision * PNPM Peduli, of infrastructure, programs focused on provision of capital support, programs focused on provision of * PNPM Integrasi, training or support, and programs focused on provision of assistance in kind. A community empowerment * PNPM KP and program may have one or more of these types of activities. Although this study focuses on community * PNPM Penanggulangan Dampak Krisis. empowerment programs in the past three years, it may be that a program has been running for longer, because In addition, in the study area, there are also national it is implemented every year. Of the two categories of government empowerment programs that are not sample village (good integration and poor integration), under the auspices of PNPM. In fact, it could be said there was no difference in empowerment programs, that almost all ministries have empowerment activities in terms of their number, types of activity, or source of in the villages, although with different approaches. funding. These programs include Pamnsimas, Urban Sanitation and Rural Infrastructure 13 (URSI), Program Usaha Mina 2.1.1 Empowerment Programs from Perikanan (PUM-KUBE) and UPPKS (see Appendix 1 National Government for details). Community empowerment programs originating from All the research locations had at least one, and national government are generally programs that are the same, empowerment program from national funded from the state budget, normally with a funding government, namely PNPM MP, which activities were contribution from the region. These programs are run implemented at the village level. Only one village in by the respective ministries or government agencies. Lombok Timur did not have PNPM MP because this Their activities take the form of physical development village already had another PNPM Inti program (PNPM programs in rural areas, community capacity building, PISEW). credit union schemes to help communities through groups, and/or revolving funds for community groups at 2.1.2 Empowerment Programs from the village level. Local Government (Province and District) Some of these programs are under the PNPM "banner" and others are non-PNPM sectoral programs from Empowerment programs from local government ministries/government agencies. Of the empowerment (province and district) comprise empowerment programs under the PNPM banner, some are under programs that are funded from the provincial budget PNPM Inti and others under PNPM Pendlukung. PNPM or the district budget. In general, these programs Inti programs in the study locations include: are translations of the vision and mission of the governor/district head. These local government C PNo MM , empowerment programs do not differ much from the national government programs, namely, infrastructure c P2KP (the program has now ended, but the revolving development in rural areas and credit union schemes, funds scheme continues), including the provision of training. S PNPM PISEW, and * PNPM PPIP. " Samttash Perkoeaan dan Infrastruktur Perdesaan. 22 PROLIFERATION OF EMPOWERMENT PROGRAMS: BENEFITS AND COSTS Community empowerment programs from provincial programs from non-governmental organizations in government are allocated to the districts by decree of one village was two. Examples of this are ACCESS the governor. As an example, the Desa Berkembang and Konsorsium LSM14 in Lombok Tengah and Formasi program in Central Java, is the brainchild of the and PLAN in Kebumen. Most of these empowerment governor, who uses the slogan "Bali nDesa mBangun programs from non-governmental organizations are Desa" (Return to the Village, Build the Village). Stimulus activities that take the form of support for district funding from the provincial government are transferred government and village government, except for a few directly to the village governments and included in activities, such as the Vale Community Development the Village Budget. In 2012, for example, each village Program in Luwu Timur (which provides funding received a transfer of IDR 100 million (transferred to assistance directly to the community) and a program 476 villages in 29 districts across Central Java). These from the NGO YMP in Lombok Timur. Some of these are revolving funds which are managed collectively initiatives from non-governmental organizations are and become permanent village funds. In general, implemented in partnership with local government. empowerment programs from provincial government However, the role of local government is limited to are smaller than those from national government, both undertaking supervision of the activities that are in number and amount of funding. implemented by the non-governmental organization. Stronger forms of partnership exist, for example, in District government empowerment programs are the Community Development Program in Luwu Timur, funded and implemented by the district. An example in which Vale, as the owner of the program integrates is the ADD (Village Allocation Fund) that are disbursed its planning and budgeting activities into the regular annually to the villages. A component of the ADD is planning and budgeting mechanisms of village physical/infrastructure development that involves the government, as the recipient of the funds. However, village community. It also includes various kinds of as this partnership model will not begin until the 2013 training to meet community needs. budget year, it is not possible to see whether this mechanism can actually work. "Funds from ADD come from the district and are normally used for government-related In terms of impacts, although the empowerment development. But now there is an allocation programs from non-governmental organizations are from ADD for training, which is called ADD fewer in number, in terms of quality, villages that get pemberdayaan (empowerment)" (interview, support from non-governmental organizations have Sarimakmur village head, 15 October 2012). better program management capacity in general, and better program planning capacity specifically. An Like the provincial government programs, the district example is Sarimakmur in Kebumen District, which empowerment programs are smaller than those from gets support from Formasi. In 2011, Sarimakmur won national government. District and provincial government a national award for the Best Village in Participatory empowerment programs in the study locations are Development Planning. And since 2011, this village presented in Appendix 2. has had a social university, which is part of PNPM that offers training to other villages in development planning 2.1.3 Empowerment Programs from processes and village administration. Although not at Non-Governmental Organizations the same level of "good", other examples are Lalandu and Sukapura villages in Lombok Tengah. In the research locations, empowerment programs from non-governmental organizations originate from Intensive support from NGOs tends to be more international donors, NGOs and private company effective than regular support from local government corporate social responsibility (CSR) schemes. In (in this case, district government) or temporary general, these programs take the form of support for support (for example, from PNPM facilitators) as in local government or communities, credit unions for the examples above could indicate that community poor people, and, in small numbers, infrastructure capacity building in villages cannot be done instantly development activities. using an inflexible, formal approach, such as that adopted by government or large-scale programs (like In the study locations there were fewer empowerment PNPM). This is because formal support from subdistrict programs from non-governmental organizations than government, for example, is provided by staff who do from national government or local government. In the not have expertise in participatory approaches. Nor sample villages, the largest number of empowerment are they able to commit their time to the task. Program 1nd K ConsorLTm PROLIFERATION OF EMPOWERMENT PROGRAMS: 23 BENEFITS AND COSTS facilitators (for example, PNPM facilitators) have the give rise to these kinds of benefits and costs even if capacity to facilitate, but their time is very limited. Not it is repeated in the same village. These second type to mention supporting the planning process at the of costs and benefits arise from the characteristics of village level and giving technical assistance to build the the program itself, or from additional efforts to make a capacity of village government, they have difficulties program and other programs interact. even completing their main tasks. This was found, for example, in the findings of a study on the effectiveness As shown in the table of the consolidated benefits of support provided by PNPM facilitators (Syukri, and costs, most of the benefits and costs that arise Mawardi and Akhmadi, 2013). Conversely, support such are in the first category. This indicates that essentially, as that provided by the NGOs Formasi in Kebumen, the empowerment programs in the villages are YMP in Lombok Timur, and Konsorsium LSM in Lombok relatively uniform in terms of their design, targets, and Tengah, is intensive and provided by activists who have mechanisms. It also indicates that "additional efforts to the motivation and the time. A fluid approach that is not create program interaction" have not been effective. restricted by the hierarchical "structure" or "us (clever) Therefore, the benefits that the communities get from and them (stupid)" mindset that typifies the formal the different programs are much the same. This means support approach of government significantly increases that if just one of these programs were implemented in the effectiveness of the support provided by non- a village, but on a larger scale and for a longer period governmental organizations. (repeated), the benefits would be the same as produced by multiple programs. Conversely, if these programs had The names of the community empowerment programs been designed differently from the outset, with different from non-governmental organizations in the study goals and different targets, taking into consideration locations are presented in Appendix 3. existing programs even with the same mechanisms, there may have been more strategic benefits between 2.2 The Benefits and Costs of the programs, with existing programs complementing Proliferation of Empowerment each other. This situation would also be different if Programs the integration, synchronization and harmonization between programs were effective. The second category The proliferation of empowerment programs in the of benefits of program proliferation will be discussed in villages has affected the economic, social and political Chapter IV. aspects of community life. Of the greatest impact on communities has been the benefits of empowerment 2.2.1 Benefits of Program and development activities. But the proliferation of Proliferation empowerment programs has also brought costs for the communities, although these tend to be ignored Based on information from the FGD with the general because the benefits have been far greater. While the public and from program stakeholders, there is a general public and program implementing agencies range of perceptions about the benefits of program tend to share a common perception of the benefits, proliferation in the respective villages. As explained there are significant differences in their perceptions above, almost all the benefits that arose from the of the costs of program proliferation, which will be individual programs, not from a proliferation of elaborated on below. programs that complemented each other. Where benefits of the second type did occur, these are The research informants are of the opinion that the discussed in the context of the benefits of program benefits and costs of program proliferation can be integration in Chapter IV. Perceptions of the benefits are divided into two categories. First, the costs and summarized in table 4. benefits of program proliferation in the sense of the "multiplication" of these benefits or costs due to program proliferation. This category of benefits and costs can arise from just one program, when it is replicated. Second are the costs and benefits from program proliferation in the "strategic" sense. In terms of benefits, a program will complement and share with other programs. In terms of costs, a program might give rise to something specific. The same program cannot 24 PROLIFERATION OF EMPOWERMENT PROGRAMS: BENEFITS AND COSTS Table 4. Benefits of Program Proliferation Village NP, 1 2 3 4 5 A B C D E F G H I J K L M N 0 P 0 Total Bandungan 7 - - 14 Sarimakmur 11 - - - - 13 Gayamulya 12 - - - 13 Banyuono 7 - - - - 13 Sambit 5 - - - - 13 Purworupo 3 - - - - - 12 Kenari 7 - - - - - 12 Sukapura 9 V V V V V V V V V V V 11 Barujaya 8 V- - - - - - 11 Panaipanai 9 V- - - - - - 11 Lalandu 7 V V V V V - - - V V 10 Sukasari 8 V- - - - - - V - V 10 Randu 6 - -- - 10 Nusaindah 8 V- - V - 9 Galunggung 8 V - - - - - - - - 9 Daratan 4 V- - - - - - 8 Lombokjaya 9 V- - - - - - 8 Panjang 6 - - V - - - - 8 Frequency 18 18 18 14 18 8 5 9 9 10 10 11 5 11 16 3 12 A More development J More even development among hamlets/sub-neighborhoods B More public facilities available K Opened business opportunities for women C Major village problems dealt with more quickly and more L Business loans/capital more available community needs met D More services (educational aids scheme, posyandu, health) M Women's skills improved through training E Easier and quicker access (transport) N More experience/knowledge from the many meetings F Increased incomes (decrease in transport costs and increase in 0 Increased community participation, including women and poor commodity selling prices) people G Increased economic activity due to better transport P Increased capacity of village government in development management H Increased land prices near to road development locations 0 Residents, including women, are more used to attending meetings and expressing opinions I Increased opportunities for poor households in physical development activities Sources: Consolidated from FGD with groups of villagers at the village level . -NP: Number of programs in each village PROLIFERATION OF EMPOWERMENT PROGRAMS: 25 BENEFITS AND COSTS The table above is a consolidation of the results of focus In terms of the benefits of proliferation in the sample group discussions with groups of villagers. Because this locations that have good integration and those that information reflects the perceptions of the community, have poor integration, there were no systematic its quality may be debatable. Therefore, the figures in differences between the two. There were no significant the table above are not set figures, but rather a general differences between villages like Sambit, Kenari picture based on community perceptions. and Panjang, which were selected as villages with poor program integration and implementation, and As the table above shows, there are some types of Bandungan, Galunggung and Lombokjaya, which were benefit that in the opinion of the communities arose selected as villages with relatively good integration and as a result of program proliferation. Benefits that were implementation of empowerment programs. recognized by the communities in all the sample villages were that the proliferation of empowerment programs Furthermore, if the table consolidating the perceptions created more development in the village; created more of the communities about the benefits of program public facilities; meant that major village problems proliferation is simplified, these benefits can be divided were dealt with quickly; and made transport easier. The into five categories: benefit least experienced by village government was an increase in the capacity of village government in 1. increased number of physical facilities and improved managing development. quality of services, The village communities that perceived to have received 2. improved access (transportation) and increased the most benefits from program proliferation were incomes, the communities in all sample villages in Kebumen and Blora (12-14 types of benefit, or an average of 3. evenly distributed development, 13 benefits per village), followed by the communities in the sample villages in Luwu Timur and Barru (9-12 4. business capital and opportunities, and types of benefit, or an average of 10.5 benefits per village). Communities in the sample villages in Lombok 5. increased community and government capacities. Tengah and Lombok Timur perceived to have received few benefits from program proliferation (8-10 types Increased Number of Physical Facilities and Improved of benefit, or an average of 9.3 benefits per village). Quality of Services However, looking at the number of programs in each village, it appears that these perceptions of the benefits These were the types of benefits most experienced by had nothing to do with the number of programs in the communities in the villages, both from the community's village. Purworupo village in Kebumen, for example, had point of view and that of the program implementing just three empowerment programs in three years (2009- agency. These types of benefits were also found in 2012), yet the community felt that they had received all the villages. It is not surprising that these benefits many benefits from these three programs. Conversely, dominate, because various studies of PNPM programs, Nusaindah in Lombok Tengah and Lombokjaya in which account for most of the empowerment programs Lombok Timur have had more empowerment programs in the study locations, have found that most of their in the past three years (eight and nine programs, activities focus on development of public facilities in respectively), but they did not perceive to have received the villages, such as education, health, water supply and as many benefits as the community in Purworupo village irrigation facilities, as well as roads and bridges. Many did. other programs also allocate funds for infrastructure development, as shown in Appendix 2, which provides Naturally, in this section, the researchers are not details of the empowerment programs in the study attempting to quantify what happens in the field, but locations. rather to simply illustrate that program proliferation does not always result in a larger range of benefits, although they could be of better quality. The above comparisons could be an indication that program performance is more important than the actual number of programs. 26 PROLIFERATION OF EMPOWERMENT PROGRAMS: BENEFITS AND COSTS As well as mentioning the availability of public facilities, of these villages are Sarimakmur (Kebumen District) the communities also felt that as a result of program and Kenari (Barru District). In these villages, posyandu proliferation, some major village needs could be met services included an educational aids scheme provided more quickly. These needs are typically prioritized by local government. This meant that posyandu for implementation over the five years of the village activities are not only associated with health services medium-term development plan. With program but also include an element of entertainment and proliferation, needs that were scheduled to be met in education for infants. The following quotes illustrate the the latter years of the plan could be met more quickly. perceptions of these communities. Benefits like this were found in all the villages, to vary degrees of fulfillment. Because there are lots of programs, a lot of things have been built, like roads, which used to Most of the major village needs refer to the provision of be all muddy but are now not bad at all. Even physical facilities and increasing incomes. As shown in though (our village) is up in the mountains, the the appendix of the main needs of the sample villages, roads are in pretty good shape. Trucks carrying despite a wide variation in the types of physical facilities building materials can get up there. (Program needed, in all the villages infrastructure needs were Participant FGD participant, male, 37 years, top priority. This is very interesting, because even in Kebumen District, 13 October 2012) villages considered well-off (like villages in Luwu Timur and Barru), the main needs were the same as those in Lots of programs, so lots of physical poor villages (such as in Kebumen and Lombok Tengah). development, roads, drainage, mi... A On the one hand, dependency on infrastructure may kindergarten, and posyandu. If there was only indicate lack of physical infrastructure in the villages; one program, all that couldn't have been built. but it may also indicate that there are problems with (Poor Women FGD participant, female, 27 years, the activity planning processes in these programs, Luwu Timur District, 15 October 2012) or be an indication of the social dynamics in the community. As an example, the results of a PNPM MP I think that having programs like Prima impact assessment (Syukri, Mawardi, and Akhmadi, Desa and Desa Siaga, and the development 2013) indicate that this tendency is also fueled by the of a posyandu by PNPM, has really helped the perception that programs like PNPM are for the general community to access health services, especially public. Therefore, the general public should be able pregnant women, babies and infants, and to make use of what these programs develop, and that elderly people, too.... (General Public FGD means public facilities. Also, this report indicates that participant, female, 28 years, Barru District, 30 the tendency towards infrastructure is also caused by October 2012) the bias of the non-poor and elites in the villages, and is also a means to avoiding social conflict. Improved Access and Increased Incomes Although not experienced in all villages (in 14 out of As well as development of public facilities and services, 18 villages), program proliferation was also believed to there were also a great many empowerment program have improved the quality of services in the villages, activities to improve access by building or repairing In many cases, this improved quality of services roads and bridges. This has enabled people to come was associated with better, more, or closer service and go to and from where they live. Road improvements facilities, in particular health and education services, in almost all of the sample villages, for example, In this case, the more programs that supported the enabled the communities to continue using motorbikes provision of facilities such as posyandu, kindergartens, on these roads in the rainy season, and building bridges and early learning centers, the better the perceived meant that people no longer had to ford rivers or take quality of health and education services in the village, circuitous routes. Villagers were better able to access However, in a small proportion of villages, there was facilities such as markets, schools, and health facilities, also improvement in services in the substantive sense, in shorter times. unrelated to physical services infrastructure. Examples PROLIFERATION OF EMPOWERMENT PROGRAMS: 27 BENEFITS AND COSTS A resulting benefit from this improved access is in Luwu Timur, or PIK Paket in Barru. When there are increased incomes. People's incomes have increased two or more of these programs, more beneficiaries because their productivity has increased (for example, benefit. This was perceived by the informant as even in the rainy season, they are still able to get to their distribution. However, in some villages, rather than even fields because the roads are not damaged, as in Randu distribution among beneficiaries, what was reported was village, Luwu Timur District), or because their economic overlapping, with a single beneficiary receiving more costs are reduced, or the price of their commodities than one type of credit. This happened, for example, in has increased because public transport is able to a village in Luwu Timur. "Actually, at the planning stage, negotiate the roads so they no longer have to rent there wasn't any overlapping, but at the user level, special vehicles to take their crops to market. Naturally, overlapping still occurs. For example, some people this is not always (perceived to be) the case. As the who got loans from the farmer group association (from table above shows, only half or less than half of the PUAP), also got loans from Dana Stimulan" (interview, sample villages experienced economic benefits from male, Village Secretary, 21 October 2013). this improved access. This is because the decision to improve access or build roads/bridges is not solely Business Capital and Opportunities based on consideration of the economic benefits, but also on social considerations (to avoid envy between Another, equally large, benefit is easy access to capital. beneficiaries or hamlets) or political considerations (elite A fair number of empowerment programs in the sample capture). villages focus on this, or have a component providing business capital assistance, especially to poor people. Evenly Distributed Development The largest program in this category is PNPM Mandiri, through the SPP program component. A proliferation of Another benefit of program proliferation is that more SPP-like programs offers villagers more beneficial range than one location can be developed in a particular of options than borrowing funds from moneylenders year, which the communities perceive as fair. The data or the like. Some informants even said that with the above suggest that in villages that have only a few proliferation of capital support programs like these, empowerment programs, such as Purworupo, Banyuono, moneylenders, 'mobile banks', and such like have and Daratan, none of the informants perceived evenly disappeared. distributed development as a benefit. Although it cannot be automatically assumed that development is ... now a range of business development unevenly distributed in these villages, this does indicate loans is available; it used to be the lenders that that the more programs, the more likely the community did the picking and choosing .... (Interview, is to distribute the benefits to other communities or male, 34 years, Barru District, 1 November 2012) locations. However, in several villages in Luwu Timur that have many programs, there was no perception of ... there aren't any moneylenders or bank development being evenly distributed, because, among plecit (organized moneylenders) in this village other reasons, the village elites dictate the development anymore, not since the credit union program. planning process. More specifically, in two villages in (Interview, male, 47 years, Kebumen District, 12 Luwu Timur, several informants at the village level made October 2012) direct reference to the authoritarian nature of the village head. There are lots of benefits, especially (from) the revolving funds. People can increase their Even distribution of the benefits of development incomes because they can get low interest refers not only to geographical distribution (among business loans on easy terms. Before this hamlets or among sub-neighborhoods), but also to program started, people had no choice but to distribution among program beneficiaries (poor/ borrow from moneylenders, at high interest and vulnerable people). The latter is more relevant to with no guarantees. (interview, female, 37 years, empowerment programs that offer micro-credit, such as Luwu Timur District, 21 October 2012) Simpan Pinjam untuk Perempuan (oPP)1r, Dana Stimulan 1e Womenrs Saving and Loan 28 PROLIFERATION OF EMPOWERMENT PROGRAMS: BENEFITS AND COSTS Some informants said that using the loan facilities of through training and support provided by programs these various empowerment programs had been very to beneficiaries and to program managers. Practical helpful. However, for others, the fact that these loans ability is ability that is typically not based on theory and had to be repaid was perceived as a burden. Therefore, is obtained from first-hand experience in an activity or as shown in the table above, quite a large proportion event. of villagers (8 of 18 villages) did not perceive capital support schemes like SPP as a benefit. In their opinion, According to the informants in the villages, they these funds should not have to be repaid. obtained both of these types of ability from the proliferation of empowerment programs. In the case of As well as providing benefits in the form of business technical training, not many programs provide specific loans, program components that offered low-cost training or support to villagers in how to do or make loans were also perceived as opening up business something. As show in Table 4, only 5 of the 18 villages opportunities for villagers. However, there are no data have had technical training activities in the past three available on the number of beneficiaries of these loans years. Nearly all this skills training was for women, and who actually use them to strengthen existing business included sewing, cake-making, organizing weddings, or start new businesses, rather than to buy consumer and so on. There was very little training for men in the goods. Past studies of PNPM (Syukuri, Mawardi, and sample villages, and the training that was provided was Akhmadi, 2013; PSF 2010) indicate that their numbers very simple repair shop training, which was provided are few, not only because the amount of funds provides by the youth group Karang Taruna in Kenari village, is not sufficient to develop a business, but also because with support from Barru District government. For there is not technical assistance on how to start a managers of programs under the PNPM umbrella, there business, either from the program or another source. are various program management technical training However, in several of the sample villages, there were courses (bookkeeping, procurement, monitoring and initiatives to provide support and training, such as in evaluation, etc.) to equip them to manage the programs Kenari in Barru District, and in villages in Kebumen. in their respective villages. In Kebumen and Lombok What was not found was coordination between Tengah, there are local NGO (Formasi in Kebumen programs so that they complement each other, for and Konsorsium LSM in Lombok Tengah) initiatives to example, with program A providing loans and another provide training and support related to participatory program providing training, planning. While the benefits are more universal and can be The benefit of improved ability of the second type accessed by both men and women, the benefits of (practical skills), for the most part, is related to capital support are, for the most part, enjoyed by experience of involvement in program implementation. women, especially under PNPM. Although men do Information from the field indicates that for the general not have direct access to business loans, this does not public, the practical skills that were improved were mean that they do not benefit from them. In fact, in limited to confidence and the ability to speak and many cases, it is the women who secure the loans, but express opinions at meetings. For program managers, the men who manage the funds and decide how they all the benefits were related to the ability to manage should be used. programs, which are also benefits of improved technical abilities. Increased Community and Village Government Capacities Other benefits The proliferation of empowerment programs in the Among the other benefits recorded from the interviews villages gives villagers more opportunities to be was the political benefit of giving the village head a involved, as beneficiaries and as managers of these "sgood name" or reputation. A good name is obtained programs. According to the informants, inclusion in by a village head who has managed to "bring in" a these programs has made them feel more able to do proliferation of programs to the villages, even though in things than they had in the past. In simple terms, this fact this proliferation of programs was not solely due to ability can be divided into two categories: technical the village being proactive. This good reputation will be ability and practical ability. Technical ability is ability an asset for the incumbent village head when it comes that is typically based on a principle/formula/theory to being re-nominated at the next election, as these and is typically obtained through a process of learning, village heads in Lombok Tengah frankly explain: PROLIFERATION OF EMPOWERMENT PROGRAMS: 29 BENEFITS AND COSTS contributed to increasing women's participation, both as program beneficiaries and program implementers. However, as shown in Table 4, increased participation of women and poor groups to a level that the community feels is satisfactory was found in only a few villages. In these villages, women were genuinely involved in the various program stages, including planning and implementation of activities. Also, a number of women held key positions, such as chair/vice chair of the activity management team or community cadre. This was evident from a women's meeting that was attended by almost 100 women, which was among the largest number found in the field. E iIn Table 4, the boxes with no ticks for some villages sdoes not mean that there was no participation of women gand poor people; only that in these villages, there was Wmy village.igi (Itevin e,mae 5 obkTmr no increase in participation, either as beneficiaries or implementers, of a magnitude that the informants perceived as significant. In these villages, although there Before I was village head, there were hardly were several active women, they were few in number any programs in the village. But after I was and the women involved in activities tended to be the elected, I sought information about programs same. Therefore, with regard to women's participation, from the district. And here are the results, lots the main benefits of the proliferation of empowerment of development underway ... (when the elections programs in the sample villages were from their being come round) the community will take that into development targets, rather than from an increase in account. They're bound to look at what has their role as development actors. Aside from the fact been achieved. (Interview, male, 45, Lombok that division of traditional gender roles is still very Tengah, 22 October 2012) entrenched, another reason for the disproportional participation of women in empowerment programs, as Of course it has an influence (on the beneficiaries and implementers, is the typically uniform election). If lots of programs come to the approach that these programs take, of promoting village, the community sees this as the work of women's participation. As a consequence, in locations the village head. But I'm not doing it to get a where it is difficult to promote women's participation, it good reputation or anything, I just want to build is the same handful of women who are forced attend the my village. (Interview, male, 35, Lombok Timur, various different activities. For poor people and minorities more specifically, their Although this information was explicitly mentioned situation is much the same of women, as described in two villages, in general, this could happen in all of above. The more empowerment programs, the more the other villages. It is common knowledge that an opportunities they have to benefit, for the most part incumbent who performs well will do well in every as program targets, not actors. Minorities have even subsequent election. enjoyed the benefits of program that do not target them specifically, such as in Kenari village. Also worthy of mention are the benefits of this program proliferation to women and poor / minority groups. "The ones that benefit most from evenly Recent empowerment programs have been based on distributed development, in all the hamlets, are the PNPM concept, which focuses on women and poor the poor people." (Poor men FGD participant, people. The activities carried out prioritize the interests male, 40, Barru District, 23 October 2012) of poor people, and women's groups are a proposer of activities and the target of certain activities. Although women's participation has yet to be maximized, the proliferation of programs was perceived to have 30 PROLIFERATION OF EMPOWERMENT PROGRAMS: BENEFITS AND COSTS Table 5. Participation of Women and Poor People in Empowerment Programs Village NP A B C D E F Key Sarimakmur 11 V V V - - NP: Number of programs per village Purworupo 3 V V V - - - A. Creates business opportunities for women B. Builds women's skills through training Gayamulya 12 V V V - - C. Increases the participation of women and poor people in development activities Banyuono 7 V V V V V V D. Increases the knowledge of women and poor people about development programs Bandungan 7 V - V - - - E. Women are now used to attending meetings F. Women are used to expressing opinions Sambit 5 V - V - V V Sukapura 9 - - V V V Lalandu 7 - - - - V - Daratan 4 - Nusaindah 8 - Lombokjaya 9 - Panjang 6 Barujaya 8 V - Sukasari 8 - Panaipanai 9 V - Randu 6 V - Galunggung 8 - Kenari 7 V - V - - Frekuensi 10 4 8 2 4 3 Source: Compiled from FGDs with groups of villagers 2.2.2 Costs of proliferation as shown in Table 5, not all the informants perceived these as costs, or what they had perceived as a cost had As well as having benefits, the proliferation of been compensated by results achieved. In some cases, empowerment program is also perceived as creating villagers and program actors felt that they had borne a costs. In terms of the party bearing the cost, the particular cost, particularly when related to a financial or information received about the costs arising from the in-kind contribution. proliferation of empowerment programs can be divided into three categories: costs borne by the general As Table 5 shows, there are several types of cost that public, by program actors in the village, by the village the informants perceive to have arisen as a result of administration. In terms of cost type and frequency, program proliferation. Unlike the benefits, of which most affected are the general public, followed by certain types appear in all the sample villages, no type village government and/or program actors. However, of cost appears in all villages. The three types of cost this gives no indication of the significance of the cost. shared by the most communities in the sample villages This means, although the informants reported costs, (appearing in 13-15 sample villages) were allocating PROLIFERATION OF EMPOWERMENT PROGRAMS: 31 BENEFITS AND COSTS Box 1. Participation of Minority Groups in Empowerment Programs Sennang is a beneficiary of a sewing skills course that was time to take part in program activities, clearing land, organised by the PNPM MP program in Kenari village. Unlike and making financial contributions. The costs that were the other villagers who attended this course, Sennang - who mentioned least (1-2 sample villages) were providing was born in 1986-is a man, although he looks and acts just like a women. That's why he prefers to be called bencong ('gay') than refreshments for program activities, dealing with the his own name. He doesn't like being called that, but he's used to resignation of other program managers, and the cost to it and can't complain. the village government resulting from social envy. Initially, Sennang wasn't allowed to attend the sewing course, Those that perceived the most types of cost were the because it was for women only. And Sennang, although he looks and acts like a women, is nonetheless a man. But in the end, communities in the sample villages in Kebumen and Sennang was accepted on to the course. Blora, followed by villages in Luwu Timur and Barru. Conversely, villages in Lombok Tengah and Lombok Despite being the object of frequent riducle and abuse, Timur tended to have fewer costs. In this context, Sennang has proved that despite his limitations and youth, he the number of empowerment programs in the village can be independent. In fact, he's considered one of the best tailors in Takalasi subdistrict. Now he is the family breadwinner, actually had no bearing on the types of costs perceived for his mother and young sibling, who have lived with him since by the community. Among the villages that had many his father left and got married again. Sennang says that the programs, some bore many costs; others, few. The same TNPM sewing course saved his life, was true of villages that had few programs Ku kenyya PNPM kasi'cnaulle kapang deogaga ujaia (if not for PNPM, I wouldn't have any work) Time and energy cost The proliferation of empowerment programs means more time, energy and thought for planning. For villagers who live far away from the meeting place, especially for village level meetings, there is also the cost of transport, which they must pay themselves. This cost is perceived by people in villages that are far from the subdistrict capital, because their transport options tend to be more limited and the hamlets/ settlements tend to be more spread out. According to a correspondent from Kenari village, Barru (male, 50 years, 31 October 2012), every time there is a development planning meeting in the village, the villagers who attend must pay their own fares. As a result, only a handful of villagers from distant hamlets are willing to attend the meetings, such as the respondent, who happens to have his own motorbike. Meetings are also a burden to the villagers if they are held at harvest time or at other work times. At the hamlet level, this problem can be minimnalized by holding meetings at night, but at the village level, night-time meetings are difficult to arrange because of civil service office hours. According to a FGD participant in Sukasari, Luwu Timur (13 October 2012), these costs paled into insignificance when their proposals were approved and realized. Making sacrifices for meetings were perceived to be a cost when their proposals were not realized. This is also a cost for facilitators and the meeting organizers, because they have to explain to the community why their proposals were not approved. 32 PROLIFERATION OF EMPOWERMENT PROGRAMS: BENEFITS AND COSTS Table 6. Costs of Program Proliferation Village NP A B C D E F G H I J K Total Key Costs Sarimakmur 11 V- - - - - 6 NP = Number of Programs Gayamulya 12 - - - - V - 6 A. Allocating time and energy B. Clearing land Banyuono 7 - - V - - - 6 C. Financial contributions D. Contributing labor Randu 6 - - - - - V 6 E. Contributing building materials F. Contributing refreshments Sukasari 8 V- - - - - 5 G. Responsibility for maintenance Kenari 7 - - - - - - V 5 H. Resignation of managers .I Village administration: giving advice Purworupo 3 - - V V - - - - 4 about land clearing, etc. J. Village administration: social Bandungan 7 V- - - - - - - 4 envy K. Village administration: program Nusaindah 8 - - - - - - V - 4 consolidation and monitoring Barujaya 8 - - - - V 4 Panaipanai 9 - - V 4 Sambit 5 - - - - V - - - - 3 Sukapura 9 - - -- - 3 Lombokjaya 9 - - V V - - - 3 Galunggung 8 - - V 3 Lalandu 7 - - - 2 Panjang 6 - - V V - - - 2 Daratan 4 - - V - - - - - 1 Frequency 15 14 13 8 3 1 4 1 4 2 6 Source: Compiled from FGDs with groups of residents in the villages A proliferation of programs also means more time, Clearing land energy and thought spent when managing programs. The managers in the sample studies have to set The proliferation of empowerment programs also aside multiple allocations of time, because some requires that villagers make in-kind contributions. This are managers for more than one program. This cost is typical for empowerment programs that focus on increases when a manager resigns before a program infrastructure development. Empowerment programs activity is completed. like these do not allow grant funds to be used to purchase land, so the land on which the infrastructure More time, energy and thought are also expended will be developed must be provided by the villagers. In when implementing activities. When activities are the sample villages, there were no standard mechanisms implemented, if the funds are insufficient, the villagers for this provision of land, and they relied solely on are normally required to contribute labor. They are the willingness of the villagers on whose land the asked to do development work for no wages. In Sambit infrastructure would be developed. For the most part, village, Blora, the villagers were loath to contribute the villagers are willing to offer their land voluntarily labor, so the village administration covered the cost because it is for the public interest. However, this is by leasing out village owned land for a year. As well as a cost in itself because the villagers are sacrificing being used to pay workers, this money was also used to valuable property; and what's more, only a handful of buy additional building materials, villagers assume responsibility for this public interest. PROLIFERATION OF EMPOWERMENT PROGRAMS: 33 BENEFITS AND COSTS Box 2. Enough of Self-Reliance This cost is added to if clearing the land necessitates Sometimes it's fate that a community's basic need for health traversing productive crops that are a source of family care facilities cannot be met by government alone. This is income.what the people of Lalandu village in Lombok Tengah believe. income. The proposal for development of a village polyclinic that they put forward at the development planning forum was never The village administration also felt burdened by these accommodated in the regional development plan, even though demands for land, because they are the ones that building a clinic was one of the priorities in theirvillage medium- must make sure that land is available. This burden was term development plan. The only health services in the village exacerbated if the villager concerned was reluctant had been at the home of the village head, where facilities were limited. This meant that to deliver a baby, a woman would have or unwilling to hand over the land. In Sukasari village, to go to the primary health centre in Mujur or Ganti. "It's so Luwu Timur, for example, when villagers refused to allow expensive. Hiring a motorbike taxi, for example, is DR 10,000. their land to be cleared to build a connecting road, the You can go on a motorbike if you're pregnant, but if you're about earmarked funds were ultimately allocated elsewhere. to give birth, you need to go in a car. That costs between DR In Panjang village, Lombok Timur, when the village 50,000 and DR 100,000," explained the Lalandu hamlet head. government was unable to provide land to build a junior They hit the jackpot in 2011 when the PNPI Generasi program secondary school, the program was moved to another offered them an opportunity to build a village polyclinic. I was village. In the same village, villagers refused to give up asked, 'are you ready or not to build a polyclinic?, and I said, land for a farm access road because they had not been 'yes of course, the community really needs one. We've been properly informed. After the development was moved to running a polyclinic out of the village head's house'," said the village head. The good news was that this chance came without another location and the benefits seen, these villagers the need to compete in the way that they would if the offer had were disappointed and asked for a road to be built on comefrom PNPM MP"If it had been underthe MP program, we their land. wouldn't have stood a chance. But under the Generasi program, we didn't have to compete," explained Jumalim, head of Financial contributions people's welfare in the village. However, like other empowerment programs, building the Some infrastructure development also demands village polyclinic under PNPM Generasi also required a financial contributions from villagers, either because contribution from the community. It was this requirement that this is a part of the program mechanism or because the turned out to be a problem. The percentage contribution funds made available by the program are not sufficient required forthis developmentwas substantial; far greaterthan it would have been under the PNPM IMP program. "It worked out to complete the development project planned by as a contribution of more than 30%. Under the MP program the the community. In Purworupo village, Kebumen, for maximum is just 10%," said Jumalim. example, the estimated cost of building an irrigation dam was IDR 320 million, but in the 2013 budget, Because they had already accepted the offer and it was only IDR 180 million had been allocated. This meant something that the villagers needed, the village meeting finally that if they wanted to build a dam to the planned agreed to go ahead with building the village polyclinictogether. Every day, each hamlet had to sent at least two residents to specifications, the villagers would have to contribute the work on the development. Unlike physical activities under funding shortfall of IDR 140 million. This had happened other PNPM programs, the villagers had to work for free. And several times before in this village, such as when those who were unable or didn't have time to work on the building roads required a contribution of IDR 25,000- development, were asked for contributions, either in cash, or in IDR 250,000 per household, depending on vehicles the form of bricks, sand or other building materials. ownership. In Sarimakmur, Kebumen, the villagers The experience of building the polyclinic made the villagers were asked to pay IDR 250,000 per household as a in Lalandu feel that they'd had quite enough of programs that contribution to the bridge building fund. required such a huge contribution. "We had no choice but to do it; it really was a burden. How much it cost... .with the price These financial contributions do not stop when of land and everything. So we've had enough; we don't want stag ha finshe. Soe ifrasrucureany more offers of physical development under the Generasi the activity stage has finished. Some infrastructureJumalim. development requires additional financial contributions to pay for its maintenance. And the more programs a The perceived costs of the development process aside, the village has, the greater the financial contributions for Lalandu villagers are now able to enjoy the village polyclinic their implementation and maintenance. Thus, some that they built themsleves. Pregnant and delivering women are able to make use of the facilities the polyclinc provides, and villagers are reluctant to accept programs that demand which include simple post-natal in-patient facilities. And it's not voluntary contributions. only the residents of Lalandu that benefit from the polyclinic; neighbouring village do too. "People from Kidang village use the facilities, too," said the Lalandu hamlet head. 34 PROLIFERATION OF EMPOWERMENT PROGRAMS: BENEFITS AND COSTS Financial contributions also have to be made by Costs for the village administration program managers. Managers have to contribute to operating costs, because most programs have a very As mentioned in the section on the cost of clearing limited amount of funding, and managers are asked land, the proliferation of empowerment programs to coordinate work, which incurs administrative and results in the additional burden for the village transport costs. administration of approaching villages whose land is going to be cleared for development. The proliferation Costs for poor people and women of empowerment programs also created an additional burden for the village apparatus of the program Poor people and women are not spared these costs of managers do not provide regular updates on the program proliferation, although nominally, the costs to progress of the program. This lack of information will poorer people are not as great as they are to others, make the reporting, coordination, monitoring and perhaps because they have no land, or only a little land, evaluation processes problematic. for clearing. Also, with regard to financial contributions, there are villages/hamlets that mean test contributions. For example, in Purworupo, Kebumen, several hamlets set different contributions for road development, at IDR 25,000 for ordinary households and IDR 100,000 for civil servants, plus an additional IDR 25,000 for motorbike owners and IDR 100,000 for car owners. INTEGRATION OF EMPOWERMENT PROGRAMS: CONCEPT AND 35 INITIATIVES IN THE DISTRICTS Ill. INTEGRATION OF EMPOWERMENT PROGRAMS: CONCEPT AND INITIATIVES IN THE DISTRICTS lifl A sak 44 INTEGRATION OF EMPOWERMENT PROGRAMS: 37 CONCEPT AND INITIATIVES IN THE DISTRICTS 3.1 The Concept of Integration Integration as a development concept is relatively new. It emerged in response to the growth of development programs using empowerment, social security, social assistance, and similar approaches. Since 2006, the government has been attempting to integrate community empowerment programs. This initiative involves promoting the integration of the empowerment program development mechanism with the regular development mechanisms that are managed by local government. This initiative is being piloted under PNPM MP through the Program to Program Penguatan Sistem Pembangunan Partisipatif - P2SPP. Through this program, integration is conceptualized in two domains: horizontal and vertical. Horizontal integration is conceptualized as the "integration of PNPM MP planning processes into the regular development planning process (musrenbang)". Vertical integration is conceptualized as the synchronization of technocratic and political planning with participatory planning (Tim Koordinasi Program Nasional Pemberdayaan Masyarakat Mandiri Perdesaan, 2010: 10). This program has continued, and today includes several activities, including, strengthening of village finances by providing direct assistance to villagers, support to improve the quality of participatory planning by preparing or reviewing the Village Medium Term Development Plan, and developing communication and coordination between stakeholders in development, including legislative and executive stakeholders. 38 INTEGRATION OF EMPOWERMENT PROGRAMS: CONCEPT AND INITIATIVES IN THE DISTRICTS Figure 1. Horizontal Integration Figure 2. Vertical Integration Source: Tim Koordinasi Program Nasional Source: Tim Koordinasi Program Nasional Pemberdayaan Masyarakat Mandiri Perdesaan Pemberdayaan Masyarakat Mandiri Perdesaan (2010: 10). (2010: 10). This initiative is expected to be able to integrate the Pormpann rcse hthv enitgae various program planning processes into the regular inoterglrvlaepnigpocsswllb planning processes in the villages through the village lne otetcncai ln ftergoa developing planning meetings (musrenbangdes),goenetwruisatheubsrctlvltte integrate participatory planning (program planning sbititdvlpetpann ou.Tergoa and village development planning) and technocratic goen ntwruiswllpsnthirokpas planning (regional government work unit work plans), anthfoupricatswlgveedbk.Ate and integrate the two with local legislative assembly netsa,thrgialovnm twrkutsil (DPRD) policy planning. All these planning processes bexpcdtorigheuptsftesbitit are expected to be linked to each other in thedelomnpanigfrstoheeinl regular processes, from hamlet to subdistrict levels,. oenetwr ntfrm ttedsrc ee o At the hamlet level, PNPM brainstorming activitiesfutedicsonThsrgnagvrmntwk are expected to be integrated with village mapping ui ptedto activities (pengkajian keadaan desa - PKD). At themoefthdvlpenprosspoucdbte village level, Menggagas Masa Depan Desa (MPMDD)16 sbdistic developet pani formsfrn brainstorming activities under PNPM MP are expected in the rgi or plan a n tegfuned to be a part (the basis) of the village medium termbytergoabue.Thsbdticdvlpmn development planning process, and village planning p f a nemes of te meetings (Musyawara Desa Perencanaan) and women's locl legtie embl o the osincs group meetings (Musyawarah Kelompok Perempuan the subdistrict Aswel as the - MKP) are integrated into the regular village spiri Masearakat laing m r m e wich development planning process. At the subdistrict level, iorm me canis frevent plann Musyawarah Antar Desa (MAD) Prioritas dan Pendanaan for m rtituenie DDeber Ae (inter-village meeting to set development prioritise and expected to use the outputs of the subdistrict funding) become a part of the subdistrict development planning proes as a reernc t peglann processs prmhme osbdsrcees oliyveeltoment planing ath the udistrictlfo At th hamet lvel,PNPMbraistoringctdevelopmrt ent plannsiong fomis thinaoernunct forku Pomplanning haeses thattno have been quigrted io s te regular village acto planningo w oame patici tory plannin, the technocratic plans of th r n ea gornm work units adt the subdistrict level f thel development planning procesubdistrictldevelopment planning forum. Thas tene ymmeregional a legislative assell y)e feece At 1be expesrct to brin the outputs of the Fubdsric - MKP)are inegrate into he reglarvdeveloApmeni plannraa ing orm ra totecaim regiona devlopentplanin prces. t te sbditritlvel isagornment woIRk uenisrm atoth districmt lio Musywarh AtarDes (MD) rioita da Peclaaan furr Discussie ontiteinal govRnmeter work (inter-village ~ ~ ~ ~ ~ ~ ~ ni fetn ostdvlpetpirte n loru ispepetoued teoutbetable te accmmdte funding) become a part~~mor of thesudtrc development dvlpetpann propossas rodureced byr thei sbiitdevelopment planning forums jntr for ncuio inpathe (regiona gvernmgenpaticwor planig torbefunde byrtheripaonalplbudge,the subdiscrtic devlaniome planingl forkumnis, asoattendedcy membersg of theloa lllegislative assembly foh c ntten isi alsosio expectedgt usFheotpttfuhrsbisrc INTEGRATION OF EMPOWERMENT PROGRAMS: 39 CONCEPT AND INITIATIVES IN THE DISTRICTS The figure above shows that the focus of the integration concept that has been introduced by government is the planning process. However, according to the PNPM MP Integration Technical Manual, the planning process is only one of several aspects that need to be integrated. According to this manual, it is the participatory development system that must be integrated (Tim Koordinasi Program Nasional Pemberdayaan Masyarakat Mandiri Perdesaan 2010: 13); but planning is only one aspect of an integrated participatory development system. The other aspects are values, decision-making mechanisms, activity management mechanisms, accountability mechanisms, and actors. However, while integration in planning is conceptualized as "integrating and synchronizing", the concept of integration for the other aspects of an integrated development system (decision making, management, accountability, and actors), focuses more on "transferring" the principles of these mechanisms to the same aspects of other development program/activity mechanisms. This means that integration is seen as a way of bringing the processes of decision making, management, management, accountability and actors of other programs/activities in line with PNPM MP processes. Therefore, it is logical that informants at theSr iK da oa national level perceive the concept of integration as incluing ingmegrti aofuannilpermlm ad a focuses~~bse onr on "taserig th **nipe of managemeGuidline aconablt an *cosote progamsactvitis i lie wih PPM P prceses. Figure 3. Integration Juncture Therfor, itis ogial tat nfomant attheSource: Tim Koordinasi Program Nasional natona leel erciveth cocep ofintgraionas Pemberdayaan Masyarakat Mandiri Perdesaan including integration of planning per se. (2010: 11). 40 INTEGRATION OF EMPOWERMENT PROGRAMS: CONCEPT AND INITIATIVES IN THE DISTRICTS The field findings suggest that integration of aspects policy), which is intentionally planned, supported by other than planning is sporadic, in the sense that there various stakeholders (bureaucrats, politicians and is no specific model as there is for planning. Integration civil society), and strengthened by a particular policy of implementation, for example, happens only in some instrument. However, it is interesting that not all cases; that is, in Kebumen and Barru, where two or more regions have effective policy instruments. Luwu Timur programs collaborated to meet a single village need has two regulations that can promote integration and because this need could not be met by one program participation, but the quality of their implementation alone. Apart from these examples, integration of other is not as good as Kebumen's, for example. Conversely, aspects was not found. Barru District, has no policy instruments to promote integration, but is able to integrate, albeit to a limited Based on this input from the field, integration can extent. be conceptualized as divided into two: horizontal integration and vertical integration. Horizontal Based on the field findings, the following could enrich integration is integration between one empowerment the existing concept of integration described above: program and others, at one level (national program with other national programs, regional program with 1. The existing integration concept focuses only other regional programs) or at different levels (national on PNPM M. This is patently obvious from the program with regional program). Horizontal integration concentration of PNPM Integrasi (P2SPP) on PNPM can be divided into two: integration between temporary M. Also, the integration technical manual is aimed empowerment programs and regular development solely at PNPM MR Meanwhile, the other core PNPM programs, and integration between different temporary programs, such as PISEW, PPIP, and PNPM DTK (for empowerment programs. Vertical integration, disadvantaged and special regions) are not burdened meanwhile, is integration of participatory planning with the task of integrating aspects of their programs at the village level and levels above the village level with regular development programs or other (district, province, national). Vertical integration can temporary development programs. Therefore, it is also be divided into integration between participatory essential to expand the integration concept beyond planning and technocratic planning by regional PNPM MR and regular mechanisms, to include all government work units (SKPD) and participatory PNPM mechanisms and regular mechanisms. planning and policy planning, which is driven by the local legislative assembly (DPRD). 2. Expand the horizontal integration concept to accommodate existing practices relevant to In terms of quality, this integration between programs integration between two or more different programs, can also be divided into two levels. First is integration including between PNPM programs and between in the sense of communication, which at a certain programs (from donors, private sector and NGOs) level includes informal communication between those that adopt the CDD approach. involved in the program. This kind of integration happens mainly at the village level and is normally spontaneous and unplanned (certainly not planned on the basis of a policy instrument). There is also more formal integration: integration between programs or between planning (participatory, technocratic and INTEGRATION OF EMPOWERMENT PROGRAMS: 41 CONCEPT AND INITIATIVES IN THE DISTRICTS 3.2. Overview of Integration Initiatives in the Regions The integration concept as described above, at Although the general findings of this study indicate a certain level, has been adopted in the regions, a lack of commitment and participation on the part especially with regard to integrating PNPM MP of local government, some of the regions selected planning with regular planning in the villages through for this study have initiatives to step further forward. the musrenbangdes village development planning Kebumen, Luwu Timur, Barru and Lombok Tengah process. For aspects other than planning, its adoption districts have tried initiating several initiatives, such is still very limited. The reasons that actors at the as making regulations, policies and programs, to lower level are reluctant to implement integration guarantee and strengthen integration. These initiatives include, (i) their lack of understanding about what will be described elsewhere in this report. Luwu Timur integration is and the importance of integration in the District has also initiated integration implementation program implementation context, and ii) proliferation of private sector CSR programs with the regular local does not in fact have such negative consequences as government development program. Barru District has some imagine. Although the general findings of this attempted to improve the quality of village medium- study indicate that the lack of synchronization and term development planning by forming a development harmony between programs is not particularly marked, planning team trained in participatory rural appraisal program inefficiency and ineffectiveness become issues (PRA). These various initiatives will be discussed when not all programs are properly synchronized. elsewhere in this report. Conversely, when there are efforts to synchronize and harmonies these various programs, their efficiency and 3.1.1 Integration of Regional effectiveness improves. Unfortunately, not many regions Government Thought and Policy that have initiatives to implement integration go beyond the processes described above, either in terms of In this study, in principle, there are quite marked horizontal or vertical integration. differences between those districts categorized as ' good' and those categorized as 'poor'. In districts that In terms of vertical integration, the field findings are categorized as poor (Blora and Lombok Timor), confirm that the outputs of participatory planning there are very few initiatives to promote vertical or from the villages (musrenbangdes) are seldom horizontal integration in their regions. In district accommodated by local government into the regional categorized as good, there are various initiatives to find technocratic plans (regional development activity plan ways to better integrate program planning with regular and regional government unit work plans). In fact, in planning, and to accommodate community planning interview, many DPRD members said that regional into technocratic planning in an effort to meet the government not only seldom accommodated the needs of villages. These initiatives can take the form outputs of participatory planning, they were very rarely of policy making, programs, or simply coordinating involved in the development planning processes in implementation between programs. Following are their constituencies. Also, the domination of programs several integration initiative good practices found in the from national government indicates the minor role field. of local government in meeting the priority needs of village communities. Thus, it is not surprising that Kebumen District. Policy related to village and empowerment programs have been the main instrument regional planning in this district is governed by for addressing the main problems and meeting the regulations of the district head. Subdistricts have priority needs of village communities. The immense program quotas to ensure that planning at the popularity of programs like PNPM at grassroots is village level can be funded through block grants therefore understandable, given that this is the only at the subdistrict level. The model of channeling program that really addresses the needs of local programs to the villages is similar to the PNPM communities. 42 INTEGRATION OF EMPOWERMENT PROGRAMS: CONCEPT AND INITIATIVES IN THE DISTRICTS model, because funds are disbursed through PNPM Also, in the form of a program, Luwu Timur District activity management units (UPK). Also, for 2013, a Government is running the stimulant fund or P2MP draft regional regulation on the regional community (Program Perdayaan Masyarakat Perdesaan), which empowerment program has been prepared, funding is a revolving fund scheme worth DR 350 million for which has been approved for 2013. This program per village, which is strengthened by Decree of the is intended as a revision of the subdistrict quota, Head of the Regional Community Empowerment and as a strategy in anticipation of the end of PNPM Agency 21/2009 on P2MP technical guidelines. Luwu in 2014. The following description came from one Timur district also has the Program Desa Paripurna, informant: a program offers 'acceleration support' (support to accelerate development) to disadvantaged Kebumen district government is drafting a villages. Each year, three villages in one subdistrict regional community empowerment program are selected for this program. The program (Program Daerah Pemberdayaan Masyarakat implementation mechanism involves regional - PDPM), which is based on PNPM. PDPM is a government work units earmarking proposals in program initiated by the district which gives the village medium term development plan that quotas to the subdistricts. The PDPM quota are significant in terms of increasing village growth. a subdistrict receives will be based on PNPM. According to one informant, The program has been prepared for 2013 in readiness of the possible termination of PNPM "From the district, there's the P2MP in 2014. PDPM funds come from the provincial program, which since 2009 has targeted 99 budget. (Interview, Head of Planning, Regional villages in Luwu Timur District. IDR 350 million Planning Development Agency, Female, 44 per village." (Interview, Head of Regional years, 8 October 2012) Community Empowerment Program, female, 52 years, Luwu Timur District, 22 October 2012). * Lombok Tengah District. On the regulatory side, this district has a regulation of the district head Another informant said, that contains guidelines for implementing village development planning. An initiative that has At the district level, there's no real significantly promoted the effectiveness of vertical integration, except for the Desa Paripuna integration is the village information package (PID), program, in which all the regional government which aims to provide introductory information to the units, each in its respective sector, work villages about the programs that will be run by the together to deal with villages that are regional government work units, and also functions categorized as disadvantaged within a to reduce the nomination of programs to be run in particular subdistrict. Having village medium the villages. term development plans has made the situation easier - the regional government work units * Luwu Timur District. To support the integration of look at the community's needs from the village community planning and technocratic planning, on development plan, and that's what is used the policy side, this district has Regional Regulation as the basis. (Interview, Luwu Timur District 9/2008 on participatory planning for villages/hamlets. regional development planning agency, male, However, this implementation of this regulation 47 years, 9 October). at the village level is not optimal due to the lack of resources and support from the district to the The Desa Paripurna program is considered a success villages. To strengthen the optimization of this policy, by some. For this initiative, Luwu Timur won the a new policy is set to be introduced that will also Autonomy Award from the Fajar Institute of Pro regulate budgeting as a part of planning, as the Otonomi (FIPO), a pro-autonomy organization in following informants explained. the east of Indonesia under the flag of the Jawa Pos newspaper. Luwu Timur won this award for two Perhaps next year (2013), because the categories: evenly distributed development and planning and budgeting regulation is still being empowerment of the people's economy. At the drafted; at the moment, it's at the consultation village level, although communities have a positive stage at the Bureau of Legal Affairs and perception of this program regarding its contribution the regional development planning agency. (Interview, DPRD member, male, 42 years, Luwu Timur District, 14 October 2012) INTEGRATION OF EMPOWERMENT PROGRAMS: 43 CONCEPT AND INITIATIVES IN THE DISTRICTS to village development, this cannot be taken at Regarding integration between programs, the regional face value, because in these villages there was a planning development agency, local health authority, proliferation of similar programs, such as PNPM and regional community empowerment agency agreed Perdesaan, PPIP, PUAP, and so on. A separate study to a scenario with the Japan International Cooperation is needed to identify the actual impacts of these Agency (JICA), which was to allocate a portion of the programs at the village level. Village Allocation Funds of each village to developing sanitation infrastructure, with support from the Prima Barru District. On the policy side, this district has just Kesehatan program, in a partnership between the local issued a regulation of the district head governing health authority and JICA. the PIK Paket program. Also, provisions concerning PNPM Integrasi Kabupaten Barru, which will function Box 3. Integration in Kebumen as the replacement for PNPM should it end in 2014, are currently being discussed. As far as the program The integration that happens in Kebumen District was itself is concerned, PlK Paket was launched in 2010 initiated back at the end of 2009, when the Village Community and was then postponed while SOPs were revised, Empowerment Agency along with other relevant agencies worked with NGOs and the Plan International Indonesia and is expected to run again next year. Also, to Kebumen Program Unit to prepare a Poor, Gender and Child promote stronger planning in the villages, since Based Participatory Village Development Planning Manual. This 2004, the Regional Community Empowerment was followed by a collaboration between local government and Agency has provided a 21-day PRA training course Plan to run training of trainers sessions for village development for cadre in all villages. Since 2012, each village planning facilitators at the district and subdistrict levels. Then, in 2010, local government worked with P2TPD to run training has had an average of seven village cadres highly for Village Development Planning Working Groups from 52 skilled in facilitating village development planning target vilages. That year also sew the integration of village meetings. These teams are typically dubbed "Tim developmentplanningwithPNPMMPndpreparationofvillage Musrenbang" (Village Development Planning medium term development pians using the P2DP manual. In Team) by decree of the village head. Likewise, to December 2010, all villages in Kebumen District had medium term development plans as a reference for development. run subdistrict development planning meetings, Since then, Kebumen District has integrated PNPM Mandiri cadre delegates are selected from all the villages Perdesaan participatory development planning into the regular by decree of the subdistrict head. To guide the development planning system, including the village, subdistrict, implementation of the development planning and district development planning processes. This process of meetings, the Regional Community Empowerment integration, as explained by the Head of Program Planning and meetngs,Budgeting, Kebumen District Development Planning Agency, Agency issues technical guidelines annually. Having happened as follows: these village development planning teams is perceived to have improved the quality of planning The integration was facilitated by the regional development in the villages because the brainstorming process planning agency, village community empowerment agency, which were facilitated by the PNPM program, by at the hamlet level (in some villages, this begins at accommodating participatory planning....Village communities the sub-neighborhood/RT level) is more effective had to be shrewd, and make sure that the activities they with facilitators who are equipped with PRA skills. proposed were already in the regional government work unit Before these teams existed, the ideas brainstorming work plans. So, when the regional government work units sessions were usually facilitated by village/ are doing their planning...for example...if a village...makes a proposal to the district .., to save money ... rather than using hamlet administrators or by community leaders its Village Allocation Funds, any proposals that can be funded that community/village administration deemed by the regional government work units can be put forward for competent to facilitate these brainstorming sessions, the subdistrict quota, and if they aren't approved, only then do despite having no expertise in this area. However, they use the Village Allocation Fund. after several meetings, communities felt that village Regarding the integration process, when the village development planning processes facilitated by the development planning meetings take place, proposals are PRA-trained team were not very motivating. This made to the subdistrict development planning meeting, was because once they get used to participating and any proposed programs that are already in the regional in development planning meetings with a PRA government work unit work plans are forwarded to the regional approach, they could predict what the outputs would development planning agency...and then they choose... the ones that go to the regional government work units will be. They tended to want to jump straight to the be discussed at their forum, and the proposals from the conclusions about the proposals without the bother subdistrict...might go to...PNPM, and their integration is of going through the PRA process again, discussed at the regional government work unit forum. When the PNPM and regular development plans are discussed, activities that are included in PNPM don't need to be funded... or if PNPM has funded this "road", then the rest of it can be funded from somewhere else, so saves money. That way there's integration without any overlap of activities .. when integration is done at the planning stage. 44 INTEGRATION OF EMPOWERMENT PROGRAMS: CONCEPT AND INITIATIVES IN THE DISTRICTS To optimize the planning process in 3.1.2 Factors Influencing Integration village communities, since 2004 the regional at the District Level community empowerment agency has given 21 days of PRA training to village development In essence, integration in the study locations, whether planning facilitators, including extension horizontal or vertical, is determined by several factors: workers, village community empowerment (i) the strength of leadership at various levels, (ii) workers, and community members, with each the strength of institutions, and (iii) the strength of village sending cadres every year. (Interview, civil society. With regard to strong leadership, the Head of Regional Community Empowerment community perceives that the Luwu Timur district head Agency, male, 52 years, Barru District, 3 is an avid supporter of vertical integration, in particular November 2012) of ensuring that village needs are met. However, this strong leader encounters frequent operational To support community planning to address difficulties due to the high turnover of local government poverty, Barru District has the PlK Paket staff, as one informant explained, program. The SOPs are being designed now and the program is expected to be finalized by In terms of vision and mission, there's no November 2012. (Interview, Head of Planning, doubt the district head is supportive, improving Program Planning and Budgeting, Regional villages through development. Institutional Development Planning Agency, male, 44 years, coordination is still not optimal, because there Barru District, 24 October 2012) have been lots of staff changes recently; like me, I've only been regional development Phase 1 of Prima Kesehatan was in 2007- planning agency secretary for six months. That's 2010, and phase 2 is 2011-2014. Phase 1 a constraint because these new people have to involved three subdistricts, and in phase 2, learn first so they can do their jobs effectively. all subdistricts and villages are included. The (Interview, regional development planning local health authority is responsible for the agency secretary, male, 47 years, Luwu Timur program, and its coordinators are in the finance District, 9 October 2012) department of the regional development planning agency, and the regional community Despite having a strong leadership, in Luwu Timur it empowerment agency. Phase 1 was supported has not been able to maximize integration due to weak by national government, and phase 2 was institutions and lack of support from civil society. approved for sanitation infrastructure in the villages. It's financed from the Village Allocation Things are a bit different in Barru District, Funds, because the main focus of the progam where the leadership is strong among the is capacity building. (District FGD participant, regional development planning agency heads male, 52 years, Barru District, 3 November 2012) and regional government work unit heads. Although the institutions are still in the process of being developed and civil society is not particularly strong, in Barru district, vertical and horizontal integration has begun. Most people recognize the huge role played by the head of the regional development planning agency in this respect, "Everything promotes synergy and integration, especially the planning by the head of the regional development planning agency. He is absolutely determined that the outputs of the development planning process are accommodated in the regional budget". (Interview, subdistrict head, male, 43 years, Barru District, 3 November 2012). INTEGRATION OF EMPOWERMENT PROGRAMS: 45 CONCEPT AND INITIATIVES IN THE DISTRICTS In Lombok Tengah district, as well as fairly strong Conversely, Kebumen District has a relatively leadership from the head of the regional development comprehensive model. As well as having strong planning agency, a relatively strong civil society also leadership at the regional district planning agency and contributes to promoting vertical integration by regional government work unit level, integration is also facilitating the development planning processes in the promoted by well established, efficient institutions villages and working with the regional development and supported by civil society, which is involved in the planning agency to "facilitate" at the district community and district level planning processes, as development planning meetings. This initiative was first several informants explained, rolled out in 2007, but only got going in 2010, as several informants explained, We've had a regional regulation for a long time, Number 54/2004 on community On the planning side, in terms of participation in public policy making. I was harmonizing the interests of the various parties, the one who drafted the regulation. Before it at the development planning meetings we became a regulation it was discussed with the work with non-governmental organizations, local parliament and others. (Interview, regional which facilitate the process at the village and secretary, male, 46 years, Kebumen District, 9 ward levels, in designing proposals that are October 2012). completely objective and presenting problems and their solutions at the village level, because In Kebumen District, the PPKB17 program is the domain of the regional development currently being run in cooperation with TKG18, planning agency is actually planning. (Interview, but you can get more information about that head of regional development planning agency, from the person in charge of operations at male, 50 or so years, Lombok Tengah District, 8 district level, the head of capacity building. October 2012). In general, all the community empowerment programs target poor households and most of We'd talked about and encouraged the programs are aimed at poverty alleviation. facilitation of village development planning (Interview, PNPM MP district facilitator, male, 51 meetings, but in 2007, they weren't interested. years, Kebumen District, 9 October 2012) Only when there was an instruction from Jakarta did they want to integrate, and they I have NGO partners called Formasi and called on us. Initially we prepared strategic Plan International Indonesia. These two village plans and the village medium-term organizations provide absolutely fantastic development plans, and that's when we started lessons in community participation. They work promoting integration, but local government together with our staff. We were the ones who wasn't interested in doing it then. (Interview, drafted the manual - Formasi, Plan, and the Konsorsium NGO coordinator, male, 35 years, village community empowerment agency staff. Lombok Tengah district, 28 October 2012) (Interview, regional secretary, male, 46 years, Kebumen District, 9 October 2012) The results of this initiative are evident in the cohesion in participatory planning at the village level, and in the responsiveness of local government in accommodating this planning by designing the Paket Informasi Desa or PID program. However, the degree of integration in Lombok Tengah falls short of that in Kebumen District. This is evident from the lack of integration of empowerment programs, either through the Lemper Madu program or integration of participatory and technocratic planning through the PID program. Among the reasons for this were the unpreparedness of program personnel and institutions at the local level, and the lack of supporting funds. lPemberdayaan aerempuan dan Keluarga Berencana or edomene Empowerment and Family Planning Tunjangan Keseyasteraan Guru or Teacher Welfare Support -46 4 ø yø -m *P QUALITATIVE STUDY OF THE PROLIFERATION AND INTEGRATION 47 OF COMMUNITY EMPOWERMENT PROGRAMS IV. PROGRAM INTEGRATION AND DEVELOPMENT IN THE VILLAGES 44 6f 444 in >É PROGRAM INTEGRATION AND DEVELOPMENT 49 IN THE VILLAGES 4.1 Program Integration at the Village Level Horizontal integration between development programs in the sample villages has, in general, been happening since 2010, in a variety of ways and at varying intensities. These variations exist between the villages, and even between villages categorized as having good integration and those categorized as having poor integration. And a village categorized as having good integration in a particular district/ subdistrict does not necessarily have better program integration than a village categorized as having poor integration in another district/subdistrict. However, it can be said that in general the sample villages in Kebumen District have better program integration practices than the other sample villages. This is logical because program integration has been worked towards and had wider support in Kebumen District than in the other districts. Actors/programs that contribute to and support Kebumen government and community capacity building in development management are the USAID Local Governance Support Project (LGSP), World Bank Initiatives for Local Governance Reform (ILGR), the Coordinating Ministry of People's Welfare Strategic Alliance for Poverty Alleviation (SAPA), and the Ministry of Home Affairs P2SPP program. In addition, civil society support and the fact that this program integration is welcomed among the local legislative and executive bodies play a crucial role. For the most part, it is this civil society support that differentiates Kebumen District from the other sample districts. Conceptually, program integration can occur at all stages of a development program, including planning, implementation, monitoring, evaluation and maintenance of the development outputs. In the sample villages, program integration generally happens at the program planning stage. On a limited scale, there is also program integration in a small part of the implementation phase, such as in the identifying of locations and beneficiaries. It may be that program integration across the implementation phase is still a matter for debate and regarded as difficult by many because each program has its own objectives, duration, and ground rules. 50 PROGRAM INTEGRATION AND DEVELOPMENT IN THE VILLAGES 4.1.1 Integrated Development of other villages (6 villages), these meeting were Planning conducted openly and all hamlet residents were invited. Also attending the hamlet meetings were the village Development planning integration refers to programs in planning team, which comprises the village head, village the villages synergizing with or referring to the planning secretary, empowerment agencies, community leaders, of existing development programs in the village. Having religious leaders, Family Welfare & Empowerment village development planning is the first step or pre- (PKK) leaders, community empowerment cadre (KPM) requisite to integrating development planning. Hence, and development planning facilitators. This team must discussion of development planning integration must attend all hamlet meetings in the village, so they must include discussion of the regular planning processes at be held in turn. The next level is village development the village level, the products of which are the medium planning meetings (commonly abbreviated as term village development plan (five-year plan) and the musrenbangdes in Indonesian). As well as inviting village development work plan (one-year plan). village leaders and community delegates, such as community leaders, village government, representatives a) Development planning processes in the villages of village institutions, and hamlet delegates, the village development planning meetings also involve Like the development process at the national level, representatives of government and technical agencies the development process at the village level starts at the subdistrict level. None of the village development with planning. However, unlike the largely technocratic planning meetings in the sample villages invited all the planning at the national level, planning at the villagers. village level has, in recent years, started to become participatory or involve the village community in In most of the sample villages, at the hamlet and village mapping main problems and proposing strategies meetings, women were represented to a lesser or to deal with them. One contributing factor - as well greater degree, in some cases up to more than 50%. as a technical guideline for its implementation - is Poor people were generally not invited specifically as Regulation of the Minister of Home Affairs 66/2007 representatives of a separate group, although usually concerning Village Development Planning. This some of the people attending the meetings were regulation states that all villages shall hold meetings poor by coincidence. In Banyono village, Kebumen to prepare medium term development planning District, thanks to advocacy work by the international documents and divide these into several short term organization Plan Indonesia, youth delegates were also development work plans. At the district level, some invited to the meetings. However, the youth delegates leaders or regional governments also provide more that did attend these development planning forums technical guidelines through a regional regulation, lacked the confidence to express or fight for their regulation of the district head, or circular letter, as is the aspirations. case in several of the study locations (see Table 8 in the Appendix). At hamlet meetings, the participants make a list of the hamlet's problems or needs and their strategies Since 2010, several of the sample villages have for addressing them. This list is then presented as a introduced participatory planning to prepare village proposal at the village development planning meeting. medium term development plans, as required by the At the village level meeting, all the hamlet proposals above regulation of the Minister of Home Affairs. are grouped into four development proposal clusters: However, in various ways, many of the sample villages socio-cultural, infrastructure, economy, and government. involved the community in development planning long All the proposals in each cluster are then ranked based before 2010. Of the 18 sample villages, 10 had done this on several criteria: (i) urgency, (ii) number of people before 2010; some starting as far back as 2004. affected, (iii) frequency, (iv) effect on increasing incomes, and (v) availability of potential to address the problem. This planning process is done in stages, starting with This ranked list of proposals is then turned into a list meetings at the hamlet level, except in two villages of priority village needs, which are then taken to the in Kebumen and one village in Blora, which start subdistrict level meeting. the process at an even lower level, i.e. at the sub- neighborhood (RT) level. In most of the sample villages With the exception of Panjang in Lombok Timur, (12 villages), hamlet planning meetings only involved all the sample villages had medium-term village community representatives, community leaders, development plans; and all the sample villages had religious leaders, youth leaders, village health post village development work plans. Most of the sample cadre, RT heads, and the hamlet head. In a number villages have had medium-term village development PROGRAM INTEGRATION AND DEVELOPMENT 51 IN THE VILLAGES Table 7. Characteristics of the Village Medium Term Development Planning in the Sample Villages Village Starting year Factors Enabling Community Participation Programs RPJMDes of RPJMDes*- RPJMDes-RKPDes relevant to relevant RKPDes** Planning RPJMDes? to village problems? Sarimakmur 2006 Regulation of the district > Hamlet meetings attended by RT delegates Yes Yes head and facilitation (5 people: 3 RT leaders, 2 community leaders, from Formasi (NGO) including one woman). > Village development planning meetings attended by hamlet delegates Purworupo 2006 Regulation of the district > All households invited to RT meetings Yes Yes head > Hamlet meetings attended by RT delegates (5 people, including a poor household) > Village development planning meetings attended by hamlet delegates (15-20 people, including women and poor households) Gayamulya 2010 Regulation of the district > Hamlet workshops attended by leaders and Yes No head women's representatives (25 people in total). > Village development planning meetings attended by hamlet delegates Banyuono 2010 Regulation of the district At the RT level, meetings are attenoed by men Yes No head and support from only (15-20 people) PLAN > Hamlet workshops are attended by leaders, women, secondary school children (because this village is supported by PLAN), etc. > Village development planning meetings attended by hamlet delegates (50-60 people) Lalandu 2009 Vilage Regulation of the district > Hamlet meets are attended by cadres, hamlet Yes No strategic head and support from heads, RT heads, BPD, PKK, community plan Konsorsium LSM leaders, youth group and LKMD (around 2010 30 people). In Klongkong hamlet (the most RPJMDes remote hamlet) all residents are invited to the hamlet meetings via the mosque, and around 70%-80% attend (around 80 people) > Village development planning meetings attended by around 40 hamlet delegates (around 6 per hamlet) Sukapura 2009 Instruction of the district > At the hamlet level, all residents are invited Yes No head and support from (30-50 attend) Konsorsium LSM > Village development planning meetings attended by hamlet delegates: hamlet heads, BPD, religious leaders, community leaders, cadre, etc. (total of 30 people). Nusaindah 2010 Motivation from PNPM > At the village level, attended by 10 hamlet Yes No MP delegates plus religious leaders, community leaders, cadre and program managers. Daratan 2010 Motivation from PNPM > At the hamlet level, all residents are invited, Yes No MP and around 20 attend (community leaders, youth leaders, cadre, RT heads, hamlet heads) > At the village level, hamlet delegates (6 from each hamlet) and representatives of all groups in the village. Sukasari 2010 Regional regulations > At the hamlet level, community Yes Yes 8 and 9 / 2008, and representatives, community leaders, RT heads, motivation from PNPM hamlet heads MP > At the village level, hamlet representatives Barujaya 2009 Regional regulations > At the hamlet level, hamlet community Yes No 8 and 9 / 2008 representatives, including poor people, are invited. > Village meets are facilitated by the village head and authorities, and the hamlet heads, RT heads, community leaders and community delegates are invited to attend. 52 PROGRAM INTEGRATION AND DEVELOPMENT IN THE VILLAGES Village Starting year Factors Enabling Community Participation Programs RPJMDes of RPJMDes*- RPJMDes-RKPDes relevant to relevant RKPDes** Planning RPJMDes? to village problems? Randu 2010 Motivation from PNPM > Brainstorming sessions in the hamlet are No (those Yes MP attended by the hamlet head, RT heads, funded by PT community leaders, youth leaders, women's Vale) leaders, teachers, and community delegates (active) > At the village level, meetings are attended by village administration, delegates of each hamlet including representatives of youth, community, women, religions, teachers, etc.) Panaipanai 2009 Regional regulations 8 > In the hamlets, all residents who are able No No and 9 / 2008 attend the meetings > In the village, delegates from each hamlet attend the meetings Kenari > 2004: A development planning > In the hamlets, meetings are facilitated by the No Yes Musrenbang team trained in PRA development planning team and all residents > 2010: are invited using the mosque megaphone. RPJMDes > At the village level, hamlet delegates are invited to meetings. Galung- > 2010 Motivation from PNPM > At the hamlet level, participants are the RT No (Baruga Yes gung 2006 (nota IMP heads, community leaders, religious leaders, Sayang) participatory cadre, youth leaders, hamlet head, village process) head, and community representatives (around 20-30 people) > At village meetings there around 40 participants, 10 of whom "must be" women. The participants are delegates from two hamlets, the village administration and the subdistrict administration. Village Starting year Factors Enabling > Community Participation Programs RPJMDes of RPJMDes*- RPJMDes-RKPDes relevant to relevant RKPDes** Planning RPJMDes? to village problems? Sambit 2005 (prepared Support from PPK > At the RT level, through jemash tahlil groups Yes No by the village (men & women separately) administration) > RT delegates invited to village meetings Bandungan 2011 Motivation from PNPM > Hamlet meetings attended by RT delegates No No MP > Village meetings attended by BPD, LKMD, community leaders, PKK, and women's representatives from each hamlet (total of 35-40 people) Lombok- 2008 Initiative of the village > Hamlet delegates attend three-day village Yes Yes jaya head meetings Panjang - > (Preparation of RKPDes) Village meetings Yes No attended by 15 people, including hamlet heads, religious leaders, community leaders, cadres, and program managers Key: *Medium Term Village Development Plan, **Village Development Activity Plan plans since 2010. A small proportion of villages, Funds (Alokasi Dana Desa - ADD). A requirement to notably in Kebumen District, have had medium-term have a medium-term village development plan was development plans since 2004, but at that time the also the policy of Lombok Tengah district government. planning was not participatory, but involved only village In this district, some villages have been making staff, under the supervision of the district government strategic village plans since 2006, with support from and the NGO Formasi. Preparation of the medium-term Konsorsium LSM Lombok Tengah. In Barru district, village development plans at that time was initiated by participatory planning was initiated directly by the a district government policy that required all villages district government, which offers PRA training for village to have medium-term development plans, and made cadres every year prior to the village development this a pre-requisite to receiving Village Allocation planning meetings. In Lombok Timur district, there are PROGRAM INTEGRATION AND DEVELOPMENT 53 IN THE VILLAGES no enabling policies from the district; although several b) Integrating planning villages, such as Lombokjaya, have prepared village medium-term development plans on their own initiative. Almost all the planning integration in the sample In this village, it was the newly elected village head who villages was initiated by PNPM MR. Since 2010, the initiated this. PNPM MP program design has integrated its program planning processes with the regular village development Table 6 does not reveal any pattern to the impacts from planning process. This policy has also encouraged the various village development planning processes: villages to adopt participatory development planning, for example, village development planning meetings in keeping with the empowerment concept promoted that are attended by many people do not necessarily by PNPM M. Thus, PNPM MP planning meetings produce more relevant, better quality development are merged with village planning meetings, that plans. Also, the attendance of women does not is, the brainstorming sessions are merged with the guarantee that the outputs of the village development hamlet meetings, the village forums (musyawarah planning meeting will be gender sensitive. The aim of desa) are merged with the village development this study is not to assess the quality of medium term planning meetings; and the inter-village forums village development plans, nor does it have adequate (musyawarah antar desa) are merged with the subdistrict instruments to do so; but in the focus group discussions development planning meetings. (four, involving different community groups), there was a simple instrument for assessing the quality of these There used to be two planning processes. plans, which is based on the instrument for ranking Now they've been merged into one. In the village problems produced by the Director General for integrated medium term development plan, we Empowerment of Village Communities. This instrument mark which (activities) are (funded by) PNPM, prioritizes a village's main problems based on five and which are (funded from) other (sources). criteria: i) urgency, (ii) number of people affected, (iii) (Interview, male, 42 years, Kebumen District, 10 frequency, (iv) effect on increasing incomes, and (v) October 2012) availability of potential to address the problem. The FGD participants were then asked to rank the village's Whatever they are for, all proposals refer main problems for the past five years and then check to the village medium term development the extent to which they were accommodated in the plan because the PNPM and village planning medium term village development plan. processes are combined, so all the proposals are discussed at once and then taken to the Regarding the match between the medium-term village subdistrict. (interview, male, 41 years, Lombok development plans (and the village development Tengah District, 14 October 2012) work plan in Panjang) and the villages' main problems, the FGD participants were of the opinion that more This program's policy of integration is a key factor in the often than not the village development plans did not integration of planning and preparation of participatory accommodate the main problems (10:8). This means that village medium term development plans. This is evident some of the problems that the community perceived as from the fact that the sample villages started making priorities were not accommodated. Although some of participatory village development plans and adopting the main problems mentioned by the FGD participants integrated planning in 2010, despite the fact that the did emerge after the medium-term development legal umbrella for participatory planning had existed plan was finalized, most of them were long-standing since 2007 (Regulation of the Minister of Home Affairs problems. This cannot fully explain the quality of the 66/2007). In this context, the previous experience some medium term village development plans, because the villages had in making medium term development plans dynamics of the planning process at the meetings must was an enabling factor that expedited the adoption of also be taken into account. However, because a fairly participatory planning and integration. significant number of villages are involved, this could indicate that the village development planning forums Once the village medium term development plan is do not always produce ideal (good quality) medium finalized, integration between program planning and term village development plans. regular village planning continues with the matching of activities with the proposals in the plan. However in positioning the village medium term development plan the only reference for program implementation, all the villages and subdistricts in the study have different 54 PROGRAM INTEGRATION AND DEVELOPMENT IN THE VILLAGES policies. Kebumen District is the only region that has Bantuan Petani, but not because these programs were adopted strict rules. For stakeholders in this district, not relevant to the village development plan. Rather, referring to the village medium-term development the village did not meet the Pamsimas criteria for plan is a form of acknowledgement and recognition of water supply availability, and they were busy with the village autonomy, which is mandated by Law 32/2004 implementation of another program (Program Desa on Regional Autonomy. Thus, all programs that are Berkembang). implemented in villages must be relevant to the village medium term development plan. To secure funding In general, existing programs do not have to be from various sources, all village development proposals integrated with or match the village medium term - whether originating from village government or development plan in respect to their planning community groups - must be accompanied by the processes. Of the tens of empowerment programs village medium term plan as an appendix. Because found in the sample villages, only PNPM MP was strictly the other districts in the study do not adopt such required to do this. Other PNPM core programs, such tight rules about referring to the village medium term as PNPM PISEW, in Lombok Timur were not required to development plan, provisions at the village level vary. observe this rule. While Barujaya village (Luwu Timur district) and Sambit village (Blora district) have regulations that programs In practice, all the programs in most of the sample in the village must be relevant to their medium term villages were relevant to their village medium term development plans, the other sample villages had no development plans, and only one or two of the such regulations. programs in a small number of other villages were not relevant. Table 7 shows that of the 17 sample villages Here, everything has to be included in that have medium term development plans, 12 have the village medium term development plan. programs that are relevant to these village planning Proposals have to been in the matrix that's documents. For some of these programs, this is not in the plan, too. (Program stakeholder FGD purely a direct result of integrated planning, but partly participant, Kebumen District, 13 October 2012) coincidental, for example if the content of the village medium term development plan is very general and We've got a village medium term consists of a large number of proposals in order to development plan, and all program activities accommodate all the hamlet proposals. and activities funded by the regional budget must be relevant to this plan, because it is a Most physical activities are directly relevant, in the sense genuine reflection of the needs of the hamlet that in the village medium term development plan there and village communities and their proposals. is a proposal that exactly matches the program being (Program stakeholder FGD participant, Luwu implemented, such as road or bridge construction. In Timur District, 14 October 2012) terms of non-physical activities, the program might be relevant to the objectives of, or be closely related In Purworupo village, Kebumen district, the to activities contained in, the village medium term regulations about referring to the village medium development plan. As an example, increasing job term development plans are supplemented by tighter, opportunities is an objective of the village medium additional rules. In this village, the community has term development plan, and the program being agreed that programs coming into the village must implemented is skills training. abide by the scale of priority problems or proposals in the village medium term development plan. This The physical development activities (which rule primarily applies to programs that have been are facilitated by PNPM and PPIP) explicitly proposed by the village government/community and to mentioned in the village medium term programs that are managed by the village government/ development plan aside; other activities are not community, such as ADD and PNPM. However, we found directly mentioned in the development plan but no villages that rejected a program because it was not are related to increasing household incomes relevant to the village medium term development plan. through the agriculture sector and other Banyuono village, for example, had rejected several productive enterprises. (Program stakeholder programs, such as Pamsimas, PUAP and Program FGD, Luwu Timur District,s13 October 2012) PROGRAM INTEGRATION AND DEVELOPMENT 55 IN THE VILLAGES Table 8. Relevance of Programs to Village Medium Term Development Plan (RPJMDes) District Village All Programs Relevant to Nature of Relevance RPJMDes? Kebumen Sarimakmur Intentional, per rules Purworupo Intentional, per rules Gayamulya Intentional, per rules Banyuono Intentional, per rules Lombok Tengah Lalandu RPJMDes amended Sukapura RPJMDes amended Nusaindah RPJMDes amended Daratan RPJMDes amended Luwu Timur Sukasari NA Barujaya Intentional, per rules Randu X NA Panaipanai X NA Barru Kenari X Coincidental Galunggung X Coincidental Blora Sambit V Intentional, per rules Bandungan X NA Lombok Timur Lombokjaya V Intentional, but no rules Panjang Has no RPJMDes There are two main reasons for existence of programs In principle, the village can decide itself that are not relevant to the village medium term whether to reject or accept a community development plan: the lack of any binding rules to refer empowerment program; but we've never to the village medium term development plan, and rejected a program because we don't get that the lack of any system governing the rights of villages many. (interview, male, 56 years, Lombok Timur to reject or accept programs after considering their District, 2 November 2012) relevance to the village medium term development plan. Currently, villages are just notified when a program The situation is somewhat different in the villages of comes to the village. In fact, none of the villages Panaipanai and Randu in Luwu Timur district. In these rejected a program because the village communities two villages, it is more likely that programs are not need many programs to address various village needs, relevant to the village medium term development plan, and they feel that they are not getting a lot of programs. because they have community development programs funded by a company to the tune of IDR 50 billion a The community has never rejected a year for communities in four subdistricts. To secure this program, because we need lots of development funding support, communities only need to submit a programs.... (Interview, male, 83 years, Blora proposal, which will most probably be approved by District, 30 October 2012) the company, regardless of the village medium term development plan. However, in July 2012, Luwu Timur district government and this company agreed to adopt the PNPM planning and implementation model. Based on this agreement, relevance to the village medium term development plan is one of the criteria in the selection of proposals from the communities. 56 PROGRAM INTEGRATION AND DEVELOPMENT IN THE VILLAGES Box 4. Community Development Program in Luwu Timur Still in the context of integrated planning, programs _________________________________________ that are not relevant to the village medium term The community development (ComDev) program run by PT development plan can be addressed by reviewing Vale in Luwu Timur distributes a substantial estimated IDR 50 the development plan. This is done as a matter of billion every year to four subdistricts in which the company routine in all the study locations to ensure that the operates. The mechanism for securing these funds used to be fairly simple: community groups could submit proposals that village medium term development plan matches the were approved by the village head, and if deemed feasible outputs of PNPM planning, which is done two years in by Vale, the program would be run. Considering the impacts advance of regular development planning. Reviews can of this program, in 2012, Luwu Timur district government took also be carried out to revise the village medium term the initiative to ask Vale to merge its community development development plan to match programs that are rolled out program with the empowerment programs run by government. in the village. The latter is also done in all villages to a In July2012,throughaworkshop, LuwuTimurdistrictgovernment greater or lesser degree. In some villages, such as the and Vale agreed that the community development program villages in Kebumen District and in Sukapura, Lombok would adopt the PNPM approach to avoid overlapping and District, village medium term development plans may social envy in the community. This agreement was followed by be reviewed only as a matter of urgency, for example the setting up of ComDev committees in each of the program's target villages and subdistricts. Members of these committees to accommodate management of a disaster. The included village officials and community leaders, who were emergency conditions under which a village medium responsible for selecting proposals from the community, based term development plan can be revised are set forth on their respective village medium term development plans. in a regulation of the district head, and are limited. Proposals selected atthe village level were then re-selected bya In some other villages, the development plan can be subdistrict committee that considered the costs and the balance of programs across the villages. The proposals that are selected reviewed and revised as and if there is a program that by the subdistrict committee will then considered by the Vale the village considers important but is not included in CSR team for inclusion in the 2013 program plan. At the time the medium term development plan. A simple example this research was conducted, the process was at the stage of is Bandung Rojo village in Blora, which unintentionally selection by the subdistrict committees. received a biogas program. Although this program was Although this process is heading in the direction of program not included in the village medium term development integration, many still believe that this will not be easy to plan, because the opportunity was there, the village achieve. Many aspects still need to be managed carefully if this administration accepted it and then revised the integration is to be effective and targets are to be achieved, development plan accordingly. Therefore, it is very likely in particular to unify the various interests involved in the management of the ComDev program, as one member of the Vale CSR team explained: revised to accommodate any program that the village considers important. So far we've been running the community empowerment program using our own approach, but there are other empowerment programs, such as PNPM, that take a different approach. The differences between the two models have medium term development plan; a program resulted in different impacts on the target communities, and that is not included in and budgeted for in the produced a difference of opinion between the community and development plan cannot be accepted. If it's government. Because these differences could create problems, really urgent, then the village medium term the district government, in this case the district head, wants to development plan would have to be reviewed integrate the two. In my experience, this will be a rocky road initially, because unifying two major interests - - the company and the government - will be no easy task. (Interview, male, 38 village, Lombok Tengah, 12 October 2012) years, Luwu Timur District, 28 October 2012) Reviews are done so that programs that weren't funded the previous year can be included in the planning process, or if there are new activities that are crucial but are not included in the village medium term development plan. (interview, woman, 39 years, Randu village, Luwu Timur district, 21 October 2012) PROGRAM INTEGRATION AND DEVELOPMENT 57 IN THE VILLAGES In Kenari and Galunggung villages, Barru district, a) Regular mechanism when the village medium term development plans are reviewed to prepare the village development activity 'Regular mechanism' refers to the method of securing plan, the language used in the activity plan is also development programs through the musrengbang revised to match the terminology used in the plans development planning process. This mechanism was of the technical government work units at the district found in all of the sample villages, because Regulation level. This strategy is adopted because the language of the Minister of Home Affairs 54/2010 requires that all used in the village plans often differs from the language regions accommodate village plans. In fact, in some of of technocratic planning, which makes it difficult to the subdistricts selected for this research, this regular accommodate village plans in the regional government mechanism is not particularly effective, as indicated work unit work plans. The main reason for doing this by the fact that district technocratic development is that the district is committed to accommodating plans rarely accommodate village plans selected by the top priority community proposals generated by the subdistrict development planning process. Several the subdistrict development planning process. To informants estimated the rate of accommodation at fill this gap, since 2011, Barru district government 0%-40%. In many cases, in all the study locations, has been distributing the district government unit informants were generally of the opinion that the regular work plans beforehand to villages that are going mechanism was exhausting for the communities and to be doing development planning. In this way, the did not get enough support from local government. In village governments can "adjust" their proposals to fact, many believed that with regard to regular planning, match the district government work unit plans. The there was a gap between the time and energy invested advantage is that this speeds up the development by the community and outputs of this mechanism. planning process because village proposals match Often, the district government would run programs the district government work unit plans; on the other without taking into account the community proposals hand, this process can "emasculate" the participatory that had been discussed at the subdistrict development village development planning process. If ultimately, planning forums. participatory plans have to be adjusted to technocratic plans, community participation in development planning In my position, the most I could do is try loses its meaning. talking to the subdistrict heads to get them to focus on the priorities in the subdistrict 4.1.2 Meeting Village Needs development plan. Because this is the crucial point that people in the district often use to In principle, the proposal of development activities by justify their programs, even though in reality village communities through the development planning that's not the case; it's just a matter of interests. processes, from village to district level, is a part of the (Interview, head of Mangkutana Inter-Village effort to meet the villages' development needs. "A part Cooperative Board, male, 47 years, Sukasari of" because as well as through regular, formal proposal village, Luwu Timur District, 21 October 2012) mechanisms in the development planning process, village communities also employ other informal, non Things usually come to a standstill at the regular methods, such as "approaching" certain parties, district level, because nobody knows what including local government heads, regional government the regional government work units use as a work units, local parliament, national parliament, benchmark for prioritizing programs. (interview, ministries, CSR programs, NGOs, and the villagers' community leader, male, 42 years, Kenari extensive networks. This alternative mechanism village, Barru District, 31 October 2012) developed out of the communities' belief that the regular mechanism for meeting village needs - through Around 30 to 40 percent are accommodated the hierarchy of the planning bureaucracy, from village in the village development work plan. to district and beyond - was not a particularly effective Ultimately, the community feels that the village way of addressing village development problems. Thus, development planning forum is a waste of most of the villages in the study locations have worked time. The regional government work units are to develop various other methods of securing multiple sector focused, and should know what the development programs. villages need, but in reality that's not the case.... (interview, member of local parliament, male, 44 years, Lombok Timur District, 29 October 2012) 58 PROGRAM INTEGRATION AND DEVELOPMENT IN THE VILLAGES b) Non Regular Mechanisms I'm close to the head of the agriculture and livestock agency, and I know most of them. In the effort to meet the needs of the village that are not What I usually do is prepare a proposal if there's met through the regular planning mechanism, village a program that's definitely going to be given to governments and community groups in the sample me. If there's a meeting at the district, I don't villages typically approach various parties, including like going cap in hand, but I'm close to the local government heads, regional government work current district head, because I was on election units, local parliament, national parliament, ministries, campaign teams in two of the subdistricts. CSR programs, NGOs, and the villagers' extensive (Interview, male, 42 years, Nusaindah village networks. This approach is seen as more effective than head, Lombok Tengah District, 20 October the regular mechanism. Several village heads reckoned 2012) that most (one estimated up to 80%) development programs in their villages were the result of this In several of the sample villages, attempts to secure approach. In principle, the success of this approach programs are made not only by the village head but depends on the village head's personal networks and also by local parliament members. Local parliament how pro-active the village head is. members generally try to secure programs for their constituencies, among other reasons, to keep the The village head identifies a need, then political promises they made during the elections and contacts the relevant local government to boost support for the next election. In addition, agency. Backed by the village medium term community members sometimes individually approach development plan, because it's difficult to donors and companies operating close to their village get what you want unless it's in the village for help to meet the needs of the village that are not medium term development plan. Usually it's the accommodated via regular development planning village head who does this, coordinates with mechanisms. the government agency, then it goes to local parliament, but it's based on the village medium I have connections in national parliament, term development plan and the outputs of the so when the people in Dapli ask me about musrenbang mechanism. (Interview, male, 38 roads or a water supply system, I tap into that years, Panaipanai village head, Luwu Timur network. Because that way we are given the District, 19 October 2012) authority to determine the location. (interview, male, 43 years, member of district house of I also try lobbying the subdistrict and representatives, Blora district, 1 November 2012) sometimes the district, even though nothing's guaranteed, because proposals that are One program that resulted from being on selected at the subdistrict planning forums the ball was the Plan International Indonesia are often dropped because we don't have any empowerment program. The hamlet head representation in local parliament to fight for lobbied Plan to support the village. (interview, our proposals, so this lobbying is important if male, 35 years, Banyuono village BPD member, we want to get our proposals accommodated. Kebumen District, 18 October 2012) Before 2009 we were okay, because we had two representatives in local parliament, but Vale's Comdev program is not a government since then we've had nobody from this village. program. It's not the village government that (Interview, male, 47 years, Sukasari village head, lobbies the company; rather each group submits Luwu Timur District, 12 October 2012) proposals to Vale. Some are approved and some aren't. (interview, village health post volunteer, woman, 47 years, Randu village, Luwu Timur District, 21 October 2012) PROGRAM INTEGRATION AND DEVELOPMENT 59 IN THE VILLAGES Box 5. Getting Programs is Easy In some cases, programs come not from proposals but _________________________________________ from offers, such as from national parliament, ministries, In the past three years, one village in Blora district has received and regional government work units, which actively offer various programs from national and local government, including development programs to villages. In some cases, the community empowerment programs and support programs for offers are conditional on certain commitments from the other sections of the community. These programs include PNPM MP, a women's credit union program under the PNPM program, community or the village receiving the program. Desa Berkembang, and a biogas program. That's like the Rumpia hamlet head is The biogas program, which is run by the Blora district organizing just now - the Ministry of Agriculture environmental affairs agency, aims to encourage people to made the offer of an irrigation program, but on switch from using kerosene to biogas produced from cattle or buffalo manure as cooking fuel. This program was launched certain conditions. The community accepted it. in 2011 after the village head met a staff member from the Yes, there are certain commitments. (interview, enviornmental affairs agency. Securing this program was village secretary, male, 45 years, Kenari village, relatively easy because, unlike other programs, there was no Barru district, 29 October 2012) need for meetings or competition at the subdistrict level. Instead, it began with the village head introducing himself and chatting to this staff member and asking him where he was from. There's a program we got from subdistrict He replied that he was from a village in Blora that was in the and district political party members as middle of submitting a proposal for a bigoas program for his delegates of members of national parliament village and another village. The village head then asked if it (PPIP program). (interview, male, 36 years, would be possible to get his village involved in the program, Sambit village, Blora district, 29 October 2012) and the response was it could as long as it made a proposal. Returning home, the village head drafted a proposal for the By coincidence the village head met biogas program to the district enviromental affairs agency. someone from the environmental agency "in After waiting several weeks, the funding was reeased and the a cafd", and was offered a biogas program. biogas program was implemented in his village, with 14 biogas A proposal was made, and the village got a stoves for 14 households in the village. The stoves were given to families that had cows or buffalo, because the biogas is program for 14 biogas units (as a fuel subsidy). produced from their manure. (Interview, male, 58 years, Sambit village head, Blora district, 29 October 2012) 4.1.3 Integrating Development From various local experiences of vertical and horizontal integration, in general they can be categorized into two models: (i) structured integration, and (ii) improvised integration. In this report, integration is categorized as structured if preparations are made from the outset to effect program implementation and meet community needs. Generally, this structured integration is based on a clear policy or regulation, either from national government or from local (provincial or district/ municipal) government. Integration is categorized as improvised if it is done spontaneously and sporadically in response to specific local conditions when the program is implemented. Structured integration is typically found in district government initiatives, while improvised integration is generally found in program implementation at the village level. 60 PROGRAM INTEGRATION AND DEVELOPMENT IN THE VILLAGES a) Structured integration 3. In Lombok Timur District, integration between YMP (INGO) programs and PISEW, ADD, district public From the selected locations, various initiatives works, and the local water utility (PDAM). The were found that could be categorized as structured integration was initiated by YMP, which coordinates integration. These included: all programs and other local government agencies. The integrated components are planning and 1. In Barru district, integration between Prima implementation. Kesehatan and ADD. The initiators were JICA, the district health authority, village community 4. In Luwu Timur district, in August 2012, local empowerment agency, and the regional government initiated a workshop with private development planning agency. The integrated company Vale to agree on a CSR model that components are planning and implementation. adopted the PNPM planning method. The integrated Prima Kesehatan, which aims to improve the quality component is planning. Each village has a village of public health, is funded by JICA, but this support committee, and community groups submit proposals from JICA is only for consultants and capacity to the company via the village committee. The building through ToT at the subdistrict level involving village committee verifies the proposals with representatives of primary health centers and health the village medium term development planning volunteers at the village level. The operating costs documents. If the proposal matches the village for the volunteers and the cost of implementing medium term development plan, it will be forwarded physical activities in the community are covered by for verification by the subdistrict committee, and if the Village Allocation Fund (ADD). not, it will be rejected. 2. In Kebumen district, integration between P2MBG b) Improvised integration and PNPM MP and Urban since 2007, initiated by the village community empowerment agency. There In several villages, program integration is not restricted is also integration with regular programs, such to matching incoming programs to the regular as PKD (Pos Kesehatan Desa), which was a joint development plan, but extends towards synchronizing venture between PNPM and PKK (ADD), which in and supplementing activities across programs. These essence involves the village, through ADD, providing initiatives are typically undertaken by programs that the village health post and PNPM providing the have similar goals or fields of activity. Relevant aspects, other equipment (educational games). Village such as activities, targets and activity implementers are health post volunteers were given training. This synchronized through coordination between program program was implemented in March 2012 after implementers. In some cases, these initiatives happen health post volunteers submitted a proposal to by design in the planning phase, but are continued on cNPM regarding their needs, typically equipment, into the implementation phase. Although integrated facilities and training for volunteers. The integrated implementation is not generally the intention - rather components were planning and implementation. The it is to avoid programs overlapping, particularly in outcome was a village health post fully equipped types of activity and target group - in practice these with educational toys. Also in Kebumen district, initiatives create integration in program planning and Regulation of the District Head 117/2001 concerning implementation. No initiatives were found to coordinate the procedure for implementation of the subdistrict or synchronize monitoring, nor to integrate the various and district development planning processes, integration initiatives. requires that the regional government work units attend the subdistrict development planning meetings. The aim of this regulation is to promote vertical integration of participatory planning. PROGRAM INTEGRATION AND DEVELOPMENT 61 IN THE VILLAGES 1. Sharing work This kind of integration can also occur if there is a village/community need that has not been met by Integration in the form of work sharing occurs in one program. This typically occurs in infrastructure programs that have the same types of activities development programs that require more funding and targets. In this case, program implementers at than the program makes available. If this happens, the village level make an agreement to share the one type of infrastructure might be developed by work by scheduling activities to be implemented several, clearly defined programs or funding sources. alternately, or for one program not to do certain activities while another program is doing the them. In In its implementation this type of integration has this case, the program will instead implement other contributed to optimizing program benefits, as the activities within the scope of the program. This type program Outputs are of better quality and program of integration was found in, for example, Lombok benefits are sustainable. Tengah, because villages in this district, including the selected villagers, received PNPM Generasi and 4. Managing several programs the NICE program, which share the same types of health activities and targets, including provision of In some villages, several people were found to be supplementary food for infants. managing more than one program. According to the informants, this is largely the result of a lack of 2. Sharing targets competent people who want to become managers. However, in one village, informants said this was Some programs are integrated in terms of done deliberately to facilitate coordination and dividing up targets, either target location or target avoid program overlap. beneficiaries. Division of target location typically occurs in infrastructure programs, particularly road On the one hand, this practice can have negative construction or repair. Division of target beneficiaries effects, such as reducing the possibility of others generally occurs in programs providing business participating, but on the other hand it can be capital, training, or in-kind aid. This is done either positive because it facilitated coordination. To by constantly exchanging information or by clear promote its positive side, this doubling up needs to division of groups, for example, by age. be restricted, with due regard for regeneration, and there should be tight control by stakeholders. 3. Complementary activities 5. Coordination between program managers This kind of integration happens if there are two or more programs that have complementary activities. Program actors in several villages regularly hold The types of activities vary widely, but include: informal, unscheduled - and sometimes unplanned - meetings. These meeting can act as a coordination a. Bridge construction-road construction; platform for sharing information and ensuring that there is no overlap in the implementation b. Development of village health posts-provision of activities. This coordination can occur during of equipment-activity support-provision of planning and implementation, for the duration of supplementary food and vitamins; the activity. c. Provision of skills training-provision of capital 6. Coordination by village government loans; and In several villages, village government took the d. Equipment support-product processing initiative to hold coordination meetings of the support-marketing support. managers of all programs running in their village. The main aim of this type of coordination is to prevent overlapping. However, there were also initiatives to integrate monitoring and evaluation activities. 62 PROGRAM INTEGRATION AND DEVELOPMENT IN THE VILLAGES 4.2 Factors Affecting Integration in the Villages The integration of community empowerment programs is also integrated. Since 2012, these two programs have in the sample villages was significantly affected by undergone some separation, but according to program internal and external factors. Both can be either managers at the national level, this does not mean that enablers or disablers of integration. Internal factors the two are no longer integrated because the separation include program design and procedures contained is limited to certain aspects of program management, in each program's technical manual, similarity or mainly financial management. This is because as the compatibility of program goals and targets, and programs have grown, the financial management side program dissemination. External factors can be has become more complicated and can no longer be categorized into three aspects: institutional, leadership, handled by a single institution. and civil society. The institutional aspect includes values, systems/mechanisms, and regulations. The Program design and procedures can also hamper leadership aspect includes attitude and understanding, integration if they do not encourage integration or initiative and coordination of the leaders of village there is no alignment between programs. In general, institutions, and the leadership of program managers/ programs have their own, separate technical operating implementer at the village level. The civil society procedures. This, coupled with the sector-centric aspect includes availability and quality of human attitude of program managers, means that programs run resources, collaboration, and self-reliance in planning, separately and can even appear to be "in competition", implementation, monitoring and evaluation of in an unproductive sense. There is a tendency for community empowerment programs in the village. program implementers to treat the technical manual as "law" that cannot be broken, amended or questioned. 4.2.1 Internal Factors Some program implementers at the village level also feel comfortable implementing activities/programs a) Program design and procedures alone. They do not want the bother of program integration, either in program implementation, or in its The program design and procedures contained in the planning and budgeting. Some program implementers technical manual can be a factor enabling integration in sample villages in the districts where program if geared towards adopting the concept of integration, integration was poor even said that they would be such as PNPM MP. Since 2010, PNPM MP has been disappointed if the programs in their village were to be designed to accommodate regular planning done integrated. The programs would "clash" because they by the community at village development planning originate from different agencies, take different route, meetings. Therefore, PNPM MP has stopped planning and are funded from different sources. (Stakeholder activities internally, switching instead to strengthening FGD, Bandungan village, Blora district, 29 October regular village planning. This initiative involves 2012). integrating PNPM MP planning activities and village planning when the village medium term development b) Matching program objectives and targets plan is being prepared. After this plan is finalized, PNPM MP activities are aligned with the activity proposals in Have the same or matching objectives and targets the village medium term development plan. PNPM MR could encourage programs to integrate in the planning facilitators also help to facilitate the village planning and implementation phases. An example, the PNPM development meetings and the preparation of the credit union component and the PKK credit union village medium term development plan. component of the ADD program could be integrated, and the beneficiaries of these two programs could be In addition, PNPM MP is also designed to be integrated coordinated: poor people who received loans from with PNPM Generasi. This is evident from their the former would not be allowed to receive loans from program management structures, which are linked the latter. Another example is the integration between from national to subdistrict level. At the national level, ADD infrastructure program activities and PNPM MR both programs are managed by the same directorate activities, such as occurs in Kebumen. The two programs under Village Community Empowerment. At the district collaborated on the development of village health and subdistrict levels, PNPM Generasi uses technical posts: PNPM MR constructed the buildings, and ADD facilitators and activity management units from PNPM Pemberdayaan provided the educational toys for the MR. At the village level, planning of the two programs infants. PROGRAM INTEGRATION AND DEVELOPMENT 63 IN THE VILLAGES c) Socialization regional government work units at the district level in terms of socializing program integration: for example Socialization is key factor in determining the successful the Village Community Empowerment Agency (BPMD) implementation of a program. Proper, effective has this authority with regard to villages. socialization that is able to communicate the program objectives and mechanisms in an appropriate way to Another institutional factor that affects integration is stakeholders will drive and promote the effectiveness of district government policy that promotes community progam implementation. And vice versa if socialization participation and improved village planning. This is not done properly and effectively. In this study, it takes the form of support for village medium term was found that not many respondents understood development planning, cooperation between local the concept of integration as defined in Presidential government and NGOs to build capacity in village Instruction 1/2010. Apparently socialization of these medium term development planning in Kebumen legal provisions and their derivatives has been district, and training cadres to facilitate hamlet and negligible, particularly among the implementers of village development meetings in Barru district. empowerment programs in the villages. Program implementers do not have a clear understanding of An institutional factor that helps promote integration the concept of integration, neither of its purpose and is meetings or coordination between local leaders. For benefits nor of its technical aspects and mechanisms. example, in Kebumen, there are monthly coordination This lack of understanding has led to the idea that meetings between village heads and village secretaries, integration means "amalgamating" or "merging" of among others to advocate that village planning programs, which for many seems impossible. This lack proposals be accommodated by district planning, and of socialization is found at all levels of local government, to share solutions to and experiences in handling village from officials at the district level to program problems. implementers at the village level, particularly in districts where integration is poor. This institutional factor was found to be strong in all the sample villages in Kebumen district, and at the district 4.2.2 External Factors level in Lombok Tengah and Luwu Timur. In all the other sample villages, this institutional factor was not strong a) Institutional factors enough to promote integration. Of the external factors, institutional factors are the The existence of local government regulations and ones that most influence integration in a region, policies is vital to supporting the integration process because these factors can drive program implementers because it can also motivate village heads and program at the village level and communities to integrate implementers to implement integration. Without programs. Among these institutional factors are regulations, even if they wish to integrate programs, regional regulations, at the district or village level, village governments and program implementers at concerning integration or other matters that aim the village level will be hesitant because there are no towards integration, such as participatory planning. regulations to which they can refer to. Where these regulations are in place, a commitment to implement from the institutions under it tends to follow. However, of the locations of this study, Kebumen had the most regulations concerning participation and integration. In this location, there are even district and village provisions requiring that programs must match the village medium term development plan. That said, according to an informant from the village authorities, no program has even been rejected because it does not conform to the village medium term development plan. In Lombok Tengah district the institutional factor is significant because there are people who are determined to integrate empowerment programs. In this district, there is a clear division of tasks among 64 PROGRAM INTEGRATION AND DEVELOPMENT IN THE VILLAGES b) Leadership If there's no commitment from that leader, there's no way integration of community In terms of leadership, the aspect that affects the empowerment programs will happen in Blora implementation of integration in villages is the district. (Blora District FGD, male, 1 November commitment, capacity and role of the leaders of 2012) institutions in the village in forging connections or integration between programs. Leaders here refer to the What's preventing integration here is that village head, chair of the village development planning agreements are made at development program team, program implementation team leader, leaders meetings; in particular the wishes of the hamlet of institutions in the village, and community leaders in head for a fair share of programs prevails. (Male, the village. The village head is a central figure because 42 years, Gayamulya, 18 October 2012) he/she has the functions of government administrator, community administrator, and development administrator. Through these three functions, the village c) Civil society head has the authority to coordinate the community at the village level, administer government, and coordinate In the implementation of empowerment programs, the development programs in his/her village. village community is the main actor and subject. The willingness, ability and enthusiasm of the community Leadership aspects that can promote integration in participating in implementing programs greatly include (i) having stakeholders in the village that have determine the course of an empowerment program, in the knowledge, desire and capacity to implement particular efforts to integrate programs. The creation of integration; (ii) a village head who has the capacity to such community conditions is in turn influenced by other coordinate activity managers; (iii) community leaders factors, such as having support or facilitation. who take an active role in motivating and connecting program implementers; (iv) program managers at the From the civil society perspective, factors that village level (TPK and KPMD) who have the initiative to encourage integration are: (i) community participation in synchronize programs that have the same targets/goals; village development planning processes; (ii) competent (v) a village head who has a non-structural team to do human resources; (iii) NGO participation in supporting monitoring and support the village head, including village medium term development planning and to integrate programs; and (vi) the role of the PNPM building community capacity in planning and budgeting (MP and Generasi) district facilitator in promoting and in the village; (iv) social envy/overlapping promoting facilitating integration. stakeholders to think about integrating; and (v) the view or hope that with integration, the village/community will In all the sample villages, the leadership of the automatically attract additional development/program village head was a significant factor in whether or not funding. program integration went well. In terms of coordinating programs, program implementers, and program [The things that promote integration are] beneficiaries, the leadership of the village head was competent human resources, availability a determining factor in the success or otherwise of of natural resources, good community program implementation. Program implementation participation. And a very supportive village will also be better if a village head has the full support government. (Stakeholder FGD, Galunggung of the community rather than just a portion of the village, Barru district, 29 October 2012) community. Enabling factors are having the human Leadership can interfere with the integration process if resource potential to adopt the principles of the leaders at the village level do not support or do not empowerment (for example support for clearing care about it. Also, a village head who is authoritarian land), natural resources (local materials), and unable to accept constructive criticism can also and an active community and government. be an obstacle. Program integration allows project (Stakeholder FGD, Randu village, Luwu Timur activities and their budgeting to be more transparent. district, 19 October 2012) Thus, village heads who are not transparent and are corrupt are also a serious disabling factor in program integration. PROGRAM INTEGRATION AND DEVELOPMENT 65 IN THE VILLAGES In general, human resources in the sample villages are 4.3 Opportunities, lacking. Most villagers have only a primary education or Benefits and Challenges have never been to school. This situation is exacerbated by the lack of socialization by stakeholders, which of Program Integration means that the community has little understanding of what program integration is. As explained in the previous section, since 2010, ...One obstacle might be that program development activities in most of the sample villages managers and the authorities don't share the have been integrated in a variety of ways and to same view of how integration should work. various degrees of intensity. Integration can happen (Male, Lembo Rano, 14 October 2012) at the activity planning phase, financial planning phase, implementation phase, or when targets are Pessimism on the part of the community about determined. Integration can be horizontal - between participating in empowerment program planning also development programs at the village level, or vertical - hinders integration. Some villagers feel disappointed between development programs at the village level and that their proposals have failed to be accommodated development programs at a higher level of government at the district level. They feel that proposing activities (subdistrict or district). This integration has created is useless because it will be a waste of time, because opportunities and benefits, as well as challenges, for the their proposals have failed to be accommodated or community, authorities, and for development activities funded. Another factor impeding program integration in the village. is the community's perception that integration will close off any opportunities for the village community The type of integration that typically occurs in the to get program support from private companies unless selected village is integration between programs coordinated by the village, coming in to the village and regular plans contained in the village medium term development plan. Of all the sample villages, only one did not have a village medium term development plan, and of the 15 villages that did, not all required that other programs in the village match the village medium term development plan. However, in practice, even in villages that have no such rules, most programs that come to the village match the village medium term development plan. Hence, the benefits and opportunities from such integration are felt in almost all the sample villages, albeit to varying degrees depending on the type and intensity of the integration in the respective villages. This means that a village that has good integration will receive greater opportunities and benefits than a village where integration is poor. 4.3.1 Opportunities and Benefits of Integration Following integration, almost all programs that come into the sample villages are compatible with the village medium term development plan. Because the village medium term development plan is prepared from an accumulation of proposals from the community at the sub-neighborhood (IRT), neighborhood (RW)/ham let and village levels, program activities that are more likely to match the needs of the village community, and consequently, problems can be dealt with more quickly. Medium term development planning that involves community representatives from all RT/RW/hamlets also allows for program planning and implementation to be wider and more evenly spread among the RT/RW/ 66 PROGRAM INTEGRATION AND DEVELOPMENT IN THE VILLAGES hamlets according to the urgency and priority of the implementers to allocate the available budget. A health problem. Engaging the community in village medium worker who doubles as PKK chair in Sarimakmur village, term development planning, which in itself is the start Kebumen said: of the integration process, has improved the quality of village development planning because it is built from Integration facilitates planning if there is an accumulation of the ideas and proposals of a large funding from a higher level (of government) number of people. because having a village medium term development plan means just picking activities Integrating planning does away with the need for by level of priority (interview, female, 40 years, each program that comes to the village to repeat the Sarimakmur village PKK chair, Kebumen district, whole planning process. Previously, each time a new 13 October 2012). empowerment program was to start, planning meetings had to be held beforehand, at the RT, RW or hamlet, Integrated planning also allows for a more confident and then village level. This made the community allocation of funding sources. In Kenari, Barru and fed up, especially if their proposals were then not Burworupo villages in Kebumen, for example, funding accommodated at a higher level of government. With sources are allocated by the amount of the proposed integration, incoming programs can bypass various budget: low budget activities are funded by ADD, stages of meetings, saving the villages involved in the medium budget activities by PNPM, and high budget planning time, physical and mental energy, and money. activities by national government or the state budget. Funding sources are also allocated by type of activity; Thus, there is no longer any major disruption of the for example development of facilities are funded by a community's economic activities. An informant from particular program, while services in the same facilities Sarimakmur village, Kebumen said that: are funded by another program. This kind of integration, where funds are allocated from different sources for ... the villagers were really fed up. There related activities makes programs more effective. In could be 2-3 meetings a month. And that was the sample villages in Kebumen, for example, funds just for PNPM; it doesn't include the other are allocated from various program to support health programs like Pamsimas, RKP, ADD, and activities: for construction of village health posts, other development.... [Now there is program provision of educational toys, provision of free vitamins, integration] everything is done at the annual distribution of supplementary food, and provision of development work planning meeting. It all health workers. Thus, integration encourages programs saves time and materials. It saves on everything. to complement one another, thereby increasing the (Interview, male, 40 years, Sarimakmur village, effectiveness and efficiency of public services, which in Kebumen district, 13 October 2012) turn motivates the beneficiaries to actively participate. Integration is great because it means having Development program integration also prevents only one meeting (for all programs)...it's really the targets (geographical target and beneficiaries) hard to get everyone together (interview, male, of programs from overlapping. This also means 41 years, Kenari village program activity team, that programs are more evenly distributed. A FGD Barru district, 29 October 2012) participant in Sukasari village, Luwu Timur explained: Integration between incoming programs and regular PNPM and Dana Stimulan (Program for planning also means that development program Seed Funding) coordinate, particularly on planning in the villages is more organized and focused beneficiaries, as they do with PPIp So what because it is based on one plan. In Purwodsesa village, PPIP won't repeat what PNPM has done Kebumen, there is even an agreement that at village already ...The advantage is that there won't planning meetings incoming programs must take be any multiple beneficiaries, because the highest planning priority, to lend certainty to the order managers at Dana Simulan use the data from in which plans are implemented. Having a village SPP (PNPM) too. (Stakeholder FGD Sukasari medium term development plan as a development village, Luwu Timur district, 15 October 2012) reference also makes it easier for the program PROGRAM INTEGRATION AND DEVELOPMENT 67 IN THE VILLAGES The arrival of new programs that are synergized with 4.3.2 Challenges regular programs also has positive implications for implementation of development programs in villages. The concept of integration has been championed Several empowerment programs, such as PNPM MP, by government and others for years. Even national have used the principles of financial transparency government created a legal umbrella in 2010, which was and accountability. In turn, these principles are being followed by regulations/decrees being issued by local adopted in regular programs, because program governments or their leaders. However, understanding managers have greater awareness and because there of the concept of integration among development are demands from the community, who are more aware actors and stakeholders at all levels of government about the development activities in their village. The still varies, and for the most part is lacking. In the empowerment program principle of engaging the study locations, the concept of integration was not community is also being adopted by regular planning, fully understood by the informants. In locations where thereby strengthening development planning of the integration is poor, especially among stakeholders villages in general. at the subdistrict and village levels, integration was interpreted very simply to mean amalgamating several With integration in terms of planning, funding and programs. Even in villages where integration is good, targets, implementation of development programs the concept of integration tended to be understood in villages is more coordinated, more effective, and only by the village bureaucracy and village leaders, harmonized. Synergy between programs means the while most villagers had no idea of its meaning, potential to create integrated poverty alleviation despite attempts during the interview and FGD models, thereby contributing to the effectiveness of processes to find an equivalent concept based on local poverty alleviation efforts. understanding. This poses a challenge for growing the adoption of development program integration, which Integration also creates opportunities and benefits still requires broader and more effective socialization. for women and poor people. Through the integrated planning built by village medium term development To promote the broad adoption of integration, planning that adopts the concept of community socialization of the concept of integration needs to participation, women's participation and the be accompanied by facilitation so that communities participation of poor people in development planning and stakeholders too can understand how integration and implementation has increased. As described in works. In some study locations where integration is the section on the benefits of program proliferation good, local government and/or civil society has been for women and poor people, the participation of these providing facilitation. However, in study locations where two groups in development since integration started integration is poor, such activities are limited, and are in the sample villages differs from one province to even considered a burden by some of the agencies another. This in turn has implications for the magnitude concerned. of the opportunities and benefits from integration for these groups in each selected province. In Central The low capacity of human resources at the village Java, participation by women and poor groups is high level is also a particular challenge in implementing and increasing in all program activity phases. In West integration. In most of the sample villages, the level Nusa Tenggara, women are more often prioritized as of education and capacity of human resources is very beneficiaries, and in South Sulawesi, poor groups are limited. As a consequence, there is a tendency towards participating more in planning. doubling up of program managers, which makes for low regeneration. This could create a high level of dependency on just a handful of people, which puts the sustainability of integration, and implementation of the program itself, at risk. Hence, maximum effort needs to be made to socialize and facilitate integration, both concepts and practices, and to build community capacity, and make all those involved aware of the need for regeneration. 68 PROGRAM INTEGRATION AND DEVELOPMENT IN THE VILLAGES However, doing this presents its own challenges on Another challenge to integration is government the facilitating agency side. In regional government programs that arrive unexpectedly. Generally, this most work units at the district level, personnel are frequently frequently happens mid-way through or towards the reassigned, and usually without adequate transfer of end of the budget year. This is actually very common, knowledge from the person being replaced to the as absorption of government budget tends to pile up at person replacing him or her. This can interfere with the the end of the budget year. This continues even today socialization and facilitation processes because it may (Ministry of Finance Republic of Indonesia, 2013). Some be that the person who is expected to provide guidance programs are unexpectedly offered, or even forced on integration is a new person who has yet to get a firm upon local governments, as the district governments of grip of his or her duties. Barru, Lombok Tengah and Blora admit. Programs like these upset the rhythm of development planning in the Currently, the most common form of integration in the regions, including villages. sample villages is integration between empowerment programs and regular programs, and, on a limited Another challenge is that the integration that has scale, integration between empowerment programs. been done so far tends to be limited to the planning These integration practices are constrained by sectoral component. The challenge is to extend integration and institutional egocentrism. Each program has its to the implementation phase, even to the monitoring own mechanisms and rules, making synergy difficult. phase, so that implementation of development is more Meanwhile, village communities and governments effective and efficient. also tend not to want to waste the opportunity to secure a development program, so even if the program Integration that promotes community participation, offered is not compatible with the village medium term particularly in development planning, has resulted in development plan, it will not be rejected. more and a greater variety of aspirations and proposals being put forward by communities. The challenge here Sectoral and institutional egocentrism also hampers is to be able to do accurate scoring in development vertical integration, even though horizontal integration planning to ensure that the proposals selected are at the village level that is not supported by vertical really needed and that they will benefit all sections of integration can make communities apathetic about the community without neglecting the program's main participatory planning because their aspirations only target. At the very least, proposals made should be go so far and are not realized in the implementation of captured and made into a basket of proposals that can development programs in their villages, be dipped into whenever development funds become available. PROGRAM INTEGRATION AND DEVELOPMENT 69 IN THE VILLAGES 4.4 Integration and Building Community Capacity in Program Management As described in the section on the opportunities Integration is also assumed to build the capacity of and benefits of integration, integration has resulted villagers to communicate their aspirations at village in a reduction in the number of program planning development planning meetings. But this happens more meetings. On the other hand, integration that begins often in locations that have adopted full integration with village medium term development planning has of temporary program plans and regular village plans promoted community participation in the planning through the regular village development planning and implementation of village development. Also, process, as in Kebumen, Lomboklengah and Barru. proposals made by the community that are incorporated This is understandable, because in locations where in the village medium term development plan have there is only one planning forum, the regular village a far greater chance of being realized as priorities, development planning process is facilitated by program particularly if there is plenty of support for the program facilitators, mainly from PNPM, and in Barru district offered. This encourages the community to participate is facilitated by designated facilitators who have had in all planning meetings. There is no evidence to PRA training. It is the support, motivation and technical support the hypothesis that fewer meetings will result facilitation from these facilitators that brings the regular in less community participation. Previously, because village development planning meetings alive and makes there were too many meetings and the proposals they them more participatory, and encourages more people produced were not always realized, only the village to speak at the meetings than prior to integration. Also, elites tended to go to the meetings, while ordinary in districts such as Kebumen and Lombok Tengah, the people only turned up to one or two meetings. Since role of NGOs like Formasi and Konsorsium LSM is also integration, a larger number and greater variety of significant in promoting participation in and the quality villagers have been attending every meeting, at the RT/ of the village development planning meetings. In RW/hamlet and village level. these two districts, as well as getting support from the facilitators mentioned above, support is also provided However, this increase in the number of people by Formasi and Konsorsium LSM. attending meetings does not mean that integration has successfully motivated people who had never Thanks to this involvement of facilitators and NGOs, the been to a meeting to want to attend development communities appear to have a growing understanding planning meetings in the village. From information of the importance of planning. The communities are from the field, it can be concluded that before encouraged to communicate not only their wishes, integration there were lots of meetings at the RT to but also their needs. To strengthen the quality of the village levels. Most villagers attended only one or two village development planning process in this way, development meetings. Some villagers, described NGOs in Kebumen working together with PLAN have as "activists", attended more levels of meetings in published a village development planning meeting a particular program, and wider range of meetings manual that focuses on poor people and children. In (meetings for various programs). After integration, Barru, the musrenbang facilitator has a central role in the numerous program planning meetings were strengthening community awareness of the importance integrated with regular planning, so villagers who had of good planning: planning that is based on finding previously attended a variety of meetings at different solutions to major problems that culminate in concrete levels and related to different programs, now attend program proposals, rather than just a wishlist. With the only one development planning meeting - the village support of these actors, it is no surprise that there are development planning meeting (musrenbang) - at claims that communities are now more able to prioritize the RT/RW/hamlet level and then at the village level. problems and their solutions and then turn them into Thus integration has a greater impact on consolidating development program proposals. community participation in the regular village development planning process. 70 PROGRAM INTEGRATION AND DEVELOPMENT IN THE VILLAGES For villagers who are involved as program managers at the village level, integration has improved their capacity to coordinate with other program managers. They coordinate to ensure that the targets (location and beneficiaries) of one program and another do not overlap. Avoiding overlapping of targets makes implementation of development programs more effective. Integration has also motivated program managers to deliver improved services to the public. Because integration has encouraged activity planning and allocation of funding sources, program managers are also motivated to adjust them to ensure that the community gets more comprehensive services. As an example, in planning the development of village health posts, the program managers did not stop at constructing the buildings, but also planned for subsequent activities, such as providing health checks, educational toys, vitamins, and supplementary food for infants and pregnant women. QUALITATIVE STUDY OF THE PROLIFERATION AND INTEGRATION 71 OF COMMUNITY EMPOWERMENT PROGRAMS V. CONCLUSIONS AND RECOMMENDATIONS 4 W- 4r, lit- CONCLUSIONS AND RECOMMENDATIONS 73 5.1 Conclusions Based on the above discussions, the following conclusions can be made. 5.1.1 Benefits of Empowerment Program Proliferation a. In general, communities feel that the more empowerment programs the better. This is because of the many benefits they get, such as more village needs being met, more facilities and better quality services, increased access and incomes, fair distribution of development, and improved access to capital and business opportunities. On the other hand, program proliferation was also seen as a cost to the community. These costs include the large number of meeting villagers have to attend, and the contributions in cash, kind (land) and labor they have to make. However, some villagers do not consider these as costs, especially those who are of the opinion that these costs are not consistently borne by the same villagers; for example, a particular villager might only attend one or two of the many meetings held by a program. The same perception towards cash and land contributions was also found. Interestingly, when the outputs of an empowerment activity in a village became apparent, all the villagers admitted that the burdens and costs they (villagers and program actors) had previously felt were outweighed by the benefits they obtained. This indicates that the outputs of development activities are something that many people really need. 74 CONCLUSIONS AND RECOMMENDATIONS b. Proliferation is perceived by communities and b. Integration between empowerment programs is not program actors (facilitators and village activity done systematically, except in a handful of cases, implementation teams) to have increased community such as in two programs in Barru district (between capacity in program management. However, the ADD program and Prima Kesehatan, which are there is no grand design from these various both funded from the Barru district budget) in the programs to systematically and synergistically/ development of health facilities and services. collaboratively build the capacity of villagers in program management. This means that this c. At the village level there are sporadic initiatives to increased capacity happened only because of the synergize programs that have the same targets and villagers' involvement in the respective programs, beneficiaries. either as managers or simply as ordinary participants in program implementation. Programs that take d. The general model of empowerment program an empowerment approach in general have integration in the sample villages is to have just mechanisms to ensure that women and minority one development plan per village. In this way, groups benefit from the program. Although there are empowerment programs no longer make their own cases in which women and marginal groups are not development plans in the villages, but follow the formally affirmed in the program, either as program plan produced by the community at the village beneficiaries or as managers, there is an upward development planning meeting. However, in practice trend in the participation of women's and marginal the policy of one village one plan is implemented groups and the benefits they derive from programs. differently. Some villages do have only one planning One of the factors contributing to this is PNPM MP's process (musrenbang), but others continue to have broad presence in the regions, and in this program, separate planning processes for program activities, women and poor/vulnerable people are formally as in Blora. This is because in Blora integration affirmed. happens only at the inter-village meeting level, which is integrated with the subdistrict development c. In general the elite (village officials and community planning process. Thus, at the hamlet and village leaders) in the study locations continue to play a levels, empowerment program planning is still dominant role. Although this elite capture is not to carried out, in addition to the regular planning the extent of hijacking the decision making process, process. except in a few locations, such as one village in Barru district and one in Luwu Timur. In these cases, the e. These integrated planning initiatives have been elite are able to hijack the decision making process quite successful: of the 17 villages that have village because of weak village leadership and/or low medium term development plans, more than half community participation. consistently refer to this plan. 5.1.2 Integration Initiatives and their f. Apart from in Kebumen district, reference to the Outputs village medium term development plan is not done consistently, and in some locations, it tends to be a. Most villages that have PNPM MP have partially just a formality, because villages other than those in integrated implementation of PNPM dMP program, Kebumen make adjustments to their village medium particularly planning, into the regular development term development plans so that incoming programs process in the village. One village in Lombok appear to be consistent with the village medium Timur that did not have PNPM MP but had PNPM term development plan. PISEW, did not even have a village medium term development plan, which is the basis for integration. g. Among the most difficult to integrate are programs/ activities from national government that arrive unexpectedly. CONCLUSIONS AND RECOMMENDATIONS 75 h. There are no initiatives at the district level that 3. Socialization by programs that advocate integration, encourage actors at the village level to synergize such as PNPM MP or national government programs by forming program implementing organizations/ such as from the Ministry of Home Affairs, to provide institutions at the village level. This is due to the lack information about what integration is and how it of awareness of the importance of such initiatives. works in order to avoid misunderstanding and dispel widely-held doubts as to the feasibility of integration. i. At the village level, there are initiatives to avoid Because this view is widespread not only in the people occupying management positions in multiple villages but also at higher levels, socialization needs program implementing agencies. As well as to to start from the top and go down to the village distribute existing human resources, this initiative level. This should be done by those responsible for also aims to diminish the dominance of certain the PNPM program from the national level to village individuals in program management. Such initiatives level, and by the relevant unit (village community are successful only in villages that have adequate empowerment) in the Ministry of Home Affairs. human resources. In other villages that are poor and lack human resources, program manager positions b. External factors tend to be filled by the same people. 1. Having regulations, institutions/forums that promote j. There is an initiative from program actors in a village and facilitate integration or collaboration between in Barru district to coordinate all empowerment programs, such as local government programs programs in the village. However, this initiative failed relevant to participatory development planning and because the other program managers were not keen regional regulations accelerating poverty alleviation; on the idea, arguing that each program had its own and having inter-village head forum, village poverty mechanisms. alleviation acceleration teams, etc. k. Districts that are categorized as having good 2. Having government and NGO initiatives to improve integration (Kebumen, Lombok Tengah, Barru, Luwu the quality of village medium term plans by Timur) have initiatives in the form of programs or supporting the development planning processes policies to ensure that most proposals produced and preparation of the village medium term by the village participatory development planning development plans, as in Kebumen and Lombok processes can be accommodated in the district Tengah, or appointing and giving training to government work plan. village development planning meeting facilitators, as in Barru district. Improving the quality of the 5.1.3 Factors Affecting Integration village medium term development plan, turning it from a simple wishlist into a plan for managing a. Internal factors the village's main problems, makes it easier for incoming programs to refer to the plan because it is 1. Having a program design (only PNPM MP) that a reflection of the village's main problems. requires it to be integrated with village planning, and sharing common objectives and targets with other 3. Having a district head and village heads who have an programs in the village, understanding of and are committed to integration, enabling them to effectively coordinate the various 2. Having technical operating procedures (TOPs). programs that come to their villages. Also, level These TOPs vary from one program to another, two heads at the district level play a vital role, making program managers at the lower level afraid including the heads of technical agencies/agencies, of adopting innovations aimed at integration, in particular the village community empowerment Although the PNPM general guidelines aim towards agency and the district development planning integration, the program TOPs have not been agency, as found in Kebumen, Lombok Tengah, Barru adjusted accordingly. This issue also has to do with and Luwu Timur. the commitment of each program to integration. 76 CONCLUSIONS AND RECOMMENDATIONS 4. Having civil society groups (NGOs and community 5.2 Reco mr endations leaders in the villages) that have an understanding of and commitment to increasing the effectiveness of village development planning and implementation The above conclusions indicate that proliferation of of empowerment programs. These are found in empowerment programs has brought many benefits. Kebumen, Lombok Tengah and Barru, and the However, integration further intensifies the benefits villages categorized as having good integration in of this proliferation. Thus, these policies towards Blora, Lombok Timur, Luwu Timur and Barru. integration of empowerment programs should continue to be advocated. To strengthen integration, several 5. National and local government commitment. There things need to be done: is a tendency for each ministry/agency to want to champion their own programs. There are concerns a) Given the frequent misinterpretations about that integration will muddle programs and their integration at local and national level, there is a agencies. This misunderstanding has arisen because need for adequate socialization to improve the there have been no efforts to communicate the understanding of program actors and communities integration format that has been promoted so far. about community empowerment integration. For programs under the PNPM Mandiri umbrella, there is a need for explicitness in program implementation guidelines to promote integration between PNPM programs in the same location. b) For horizontal integration, that is, integration between ad hoc planning and regular planning, the quality of village development planning meetings needs to be improved in order to improve the quality of the village medium term development plan as the main reference for development planning in the villages. This could be done through proper facilitation by professional and experienced facilitators. A quality village development planning meeting is one that adopts the principles of participation and equity, in the sense that the meetings are attended by all villagers, who actively express their opinions and aspirations without being dominated by particular individuals or groups. Alternative planning that has been initiated by some empowerment programs was basically a response to poor village development planning. It has been poor not only because in substance it has not reflected CONCLUSIONS AND RECOMMENDATIONS 77 the main needs of the village, but also because it is e) For vertical integration, that is, integration between dominated by a handful of people. Thus, whatever district technocratic planning (of the regional has been written in the village planning documents government work units) and village participatory is important, but those who drafted are subjective. planning, To improve the quality of the development planning process, there is a need for policy affirming the 1. Districts facilitate village planning so it can participation of poor and vulnerable people. These answer the needs of the district and the needs two groups encounter various constraints (social, of the villages. This can only be done if it can be cultural, psychological, etc.) to participating in ensured beforehand that the process is genuinely development planning meetings, and if they do participatory and not just something that is done attend the same constraints prevent them from to "harmonize" village planning with the wishes expressing their aspirations. Thus one of the of the districts. To do this, regional government facilitation functions is enabling, by whatever means work units could visit the villages to explain possible, each group in the community to voice their their strategic plans (not their work plans). The opinions. involvement of community organizations and! or NGOs is vital to ensuring the quality of this c) A quality village medium term development plan participatory process. not only meets the administrative requirements established by government, but in substance must 2. For emergency/urgent needs that are not be a genuine reflection of the village community's accommodated in the village medium term main needs, and not just a wishlist. The main development plan/village development work needs can only be identified if the village's main plan, national government and provincial/district problems can be clearly described. Thus, as well government need to be open to the possibility as containing the village's main needs, the village of having block grants for open menu use by medium term development plan must also indicate communities. However, it is crucial to ensure that what the village's main problems are, and what the there is a clear accountability process to ensure benchmarks/indicators for their successful solution completely transparent financial and activity are. Learning from practices in districts such as accountability. Kebumen, Barru and Lombok Tengah, improved quality cannot be achieved through formal processes involving district and subdistrict government alone, but absolutely must involve non-governmental actors that are concerned about village development, such as NGOs, program facilitators and others. d) Although the facts in the field indicate that communities are able to coordinate activities from various program at village level, the results would be far more effective if there were consolidation of community empowerment systems to create a single system for budgeting, reporting and accountability. This would allow communities to better regulate the implementation of activities, and do away with the need for the various different reports, accounts, and brainstorming/ranking meetings that each empowerment program has. 78 QUALITATIVE STUDY OF THE PROLIFERATION AND INTEGRATION OF COMMUNITY EMPOWERMENT PROGRAMS REFERENCES Alatas, Vivi (2000) Analyzing Indonesia's Poverty Profile. Unpublished doctoral thesis, Princeton University. Dasgupta, Aniruddha dan Victoria A. Beard (2007) 'Community-Driven Development, Collective Action and Elite Capture in Indonesia.' Development and Change, 38 (2): 229-249 LP3ES, 2007, Baseline Survey Kualitatif Program Nasional Pemberdayaan Masyarakat Mandiri, unpublished MICRA, 2007, Laporan Kajian Cepat Terhadap Government Community Development Operations: Microfinance and Microcredit Projects, downloaded from: http://www.pnpm-perdesaan.or.id/ downloads/ Evaluasikeuangan&kreditmikroCDD.pdf Luttrell, Cecilia, Sitna Quiroz, Claire Scrutton, and Kate Bird (2009) 'Understanding and Operationalising Empowerment.' Kertas Kerja No. 308. Overseas Development Institute. [available at] Molyneaux, John dan Paul Gertler (1999) 'Evaluating Program Impact: A Case Study of Poverty Alleviation in Indonesia.' Unpublished. Narayan, Deepa (2002) Empowerment and Poverty Reduction: A Sourcebook. Washington DC.: The World Bank. Suryadharma, Daniel dan Chikako Yamauchi (2013) 'Missing Public Funds and Targeting Performance: Evidence from an Anti-Poverty Transfer Program in Indonesia.' Journal of Development Economics 103 (1): 62-76. Syukri, Muhammad, Sulton Mawardi, Akhmadi (2013) 'Studi Kualitatif Dampak PNPM MP di Jawa Timur, Sumatra Barat, dan Sulawesi Tenggara.' Research Report. Jakarta: Lembaga Penelitian SMERU. Tim Koordinasi Program Nasional Pemberdayaan Masyarakat Mandiri Perdesaan (2010) Panduan Teknis Integrasi Program Nasional Pemberdayaan Masyarakat Mandiri Perdesaan. Jakarta. Kementerian Keuangan RI (2013) Buletin Kinerja Edisi XV [available at] [15 Mei 2013] Legislation Presidential Instruction 3/2010 Regulation of the Minister of Home Affairs 66/2007 concerning Village Development Planning QUALITATIVE STUDY OF THE PROLIFERATION AND INTEGRATION 79 OF COMMUNITY EMPOWERMENT PROGRAMS APPENDICES 0 co - -uE - m c - o0 - u 0-ouw -a--o e om oo 0 ruo r E 0roo or ru- ru ~ -- ru 0 uj 0 0 0C o - a- 0 r-- a s 00 CO ru EJ V) Ln0m C 0L 0 ru c 0- 0-0 C) 2)Lnc: C,C o-rjZ o -G --N< ru CO ru, cl D 10o~ O 0 I- o-D 0 E E E E E o 0 0 L 0>0 0 CL OLoO o o I o LO r Lr- -- No Lu E E E ~ o - w- CO M c:-) c: c o E -L.O E: cl Nr, r 0 0 0C 00:c 0 O0- u -n 0 >n 0- in z O u 0- Ln- 0 EVE C\ ø q 0OLr) Lnr cli 2s 0- c~~~ MI ml m l O Cl rI V) z* Q u0 COý 奮■■ 闐 l＀一一〕＀一＀一：一＀、一＀、一＀、一：一＀ ！一 82 Appendix 2. Community Empowerment Programs from National Government Name of program Agency responsible Year Target Activities PNPM MP Ministry of Home 2007 - present Village communities Development of Affairs infrastructure and village community economies PNPM Generasi Ministry of Home 2008 - present Village communities Development of health and Sehat clan Cerclas Affairs education infrastructure in (GSC) villages PNPM Ministry of Public 2008 - present Civil society Development of economic Pengembangan Works organizations infrastructure in rural areas Infrastruktur Sosial Ekonomi Wilayah(PISEW) PNPM Kelautan clan Ministry of Marine 2011 Fishers, fish farmers, Facilitation of business Perikanan Affairs and Fisheries fish processors/ development assistance traders, smallholder salt quarriers, and coastal communities PNPM Paska Krisis Ministry of Home 2010-2011 Village communities Economic recovery and Affairs affected by the poverty alleviation, including economic crisis through food for work projects PNPM Pariwisata Ministry of Culture 2011 Poor communities Financial support and Tourism through tourism villages PNPM Peduli Coordinating Ministry 2011 Implementing Grant giving for People's Welfare organizations (donor organizations or national organizations with local branches) PNPM Integrasi Ministry of Home 2010 - present Villages Integrating community Affairs based planning into the participatory planning process Program Penyedia Air Ministry of Public 2008 - present communities Providing access to water Minum clan sanitasi Works supply and sanitation Berbasis Masyarakat services in poor rural (PAMSIMAS) communities DPK Sanitasi 2011 - present 83 Name of program Agency responsible Year Target Activities Urban Sanitation dan Ministry of Public 2011 - 2015 Villages Housing infrastructure Rural Infrastucture Works improvement (USRI) Program Ministry of Public 2006 - present Villages Village infrastructure Pembangunan Works improvement Infrastruktur Perdesaan (PPIP) Pendampingan Ministry of Home 2010 Villages Support for village medium- Penyusunan Affairs term development planning RPJMDes 2010-2013 and review of village medium-term development plans Desa Siaga Ministry of Health 2006 - present Villages Training for Posyandu, School Health Unit (Unit Kesehatan Sekolah, UKS) cadres, and Desa Siaga teams. BSPS Ministry of Public 2011 - present Low income Stimulus funding Housing communities Peningkatan Ministry of 2012 Officially Rehabilitation/revitalization Sarpraskop Cooperatives incorporated of infrastructure and facilities cooperatives through cooperatives P4K Ministry of 1989- 1998 Farmer and fisher Increasing the incomes Agriculture-BRI communities of farmer and fisher communities Program Peningkatan Ministry of 2008 - present Farmer group Rural agribusiness, Usaha Agribisnis Agriculture associations empowerment of farmer Pedesaan (PUAP) organizations and village economies, and capital support for farmers P2MBG Ministry of Home 2005- 2013 Women's groups Distribution of donations Affairs to homes for the elderly, assistance to women's organizations, and assistance for Family Empowerment & Welfare (PKK) activities Sekolah Lapang Ministry of 2008 - present Rice, corn and soya Increasing productivity Pengelolaan Tanaman Agriculture bean farmers through integrated crop Terpadu (SLPTT) management 84 Name of program Agency responsible Year Target Activities Ruang belajar Ministry of Home 2010- 2011 Communities Provision of capital loans to Masyarakat Affairs communities for livestock enterprises Desa Mandiri pangan Food Security Agency 2006 - present Villages and Provision of capital loans to communities communities for livestock enterprises Program Percepatan Food Security Agency 2011 - 2012 Agriculture extension Development and support to Penganekaragaman workers and accelerate food diversity Konsumsi Pangan communities (P2KP) Usaha Peningkatan National Population 2010-2012 Families Financial support Pendapatan Keluarga and Family Planning Sejahtera (UPPKS) Agency Gernas Kakao Ministry of 2010- 2012 Cocoa farmers Replacement of elderly Agriculture cocoa trees Jaringan Irigasi Desa Ministry of 2008-2012 Farmers Rehabilitation of village (JIDes) Agriculture irrigation networks/farm irrigation networks to support agriculture programs on farmland Program Usaha Mina Ministry of Marine 2011 - present Fishers Capital assistance Perdesaan (PUMP- Affairs and Fisheries KUBE) Sanimas Ministry of Public 2006 - present Densely populated Wastewater management Works slums WISMP Ministry of Home 2005- 2016 Farmers Strengthening the Affairs negotiating position of farmers, access to markets and finance SAPA Multi-stakeholder 2007 - present Villages in Strengthening pro-poor 15 districts/ program planning and municipalities in budgeting 9 provinces 85 Appendix 3. Community Empowerment Programs from Local Government Name of program Agency responsible Year Target Activities Tentara Manunggal Armed forces and 2012 Villages Infrastructure development Masuk Desa (TMMD) local government Ruang Belajar District government 2010-2011 Communities Provision of capital loans Masyarakat for smallholder livestock enterprises Program Kebumen District 2006 - present Communities House repairs for poor Pembangunan government (public people and those on low Perumahan housing and public incomes Masyarakat Kurang works) Mampu (P2MKM, sebelumnya P2P, Point To Point) P4K Kabulpaten 2003-present ADD Pemberdayaan District government 2007 - present Villages Development funding support Desa Berkembang Central Java 2009-2012 Village governments Village government facilities provincial as stimulus; village archiving government facilities as stimulus and village government infrastructure. Desa Berkembang Kebumen district 2009-2012 Villages Financial support government Program peningkatan Ministry of 1989- 1998 Farmer groups Increasing the incomes Pendapatan Petani Agriculture of farmer and fisher Kecil (P4K) communities Badan Usaha Milik Ministry of Home 2009-2012 Villages that have Financial support Desa (BUMDes) Affairs village-owned enterprises 86 Name of program Agency responsible Year Target Activities Desa Siaga Ministry of Health 2010-2012 Village communities Health checks Baruga Sayang South Sulawesi 2011 Baruga Sayang Management training Community managers, village Village and Ward governments, Government Community Empowerment Empowerment Agency Agencies Prima Kesehatan Barru District health 2011 Villages Health maintenance authority management activities Program Implementasi Kemiskinan (PlK) Paket Bansos Pertanian Ministry of 2009-present Farmer groups/ Capital assistance Agriculture farmer group associations Karang Taruna District government 2010 Youth groups (Karang Stimulus and enterprise Perbengkelan (Usaha Taruna) support Ekonomi Produktif - Karang Taruna) Dana Stimulan 2010 Villages Revolving funds Desa atau Program Pemberdayaan Masyarakat Perdesaan (P2MP) Program Daerah Kebumen district 2013 Subdistricts/villages Community empowerment Pemberdayaan government (in preparation for the Masyarakat (PDPM) replacement of PNPM) PNPM Integrasi Barru district NB: in the process of (Barru) government preparation 87 Appendix 4. Empowerment Programs from Non-Governmental Organizations (NGOs, Donors, CSR, International Organizations) Name of program District Agency Year Target Activities Responsible ACCESS Lombok Tengah Ministry of Home 2002-2008 Local government, Capacity building Affairs, AusAID civil society organizations, and communities Kabupaten Layak Kebumen Plan International 2009 Regular Anak Indonesia, empowerment Kebumen Program program, Unit scholarships, and medication Villages Support Konsorsium LSM Villages Facilitation to for village Lombok Tengah village government governments Vale Comdev Luwu Timur PT Vale Indonesia 2012 Villages Regular empowerment programs, educational scholarships, and medical treatment Support Program Lombok Tengah Konsorsium LSM Villages Support for village Lombok Tengah governments Support Program Lombok Timur YMP 2011 Communities Loan funds Support Program Kebumen Formasi 2009 Villages Support for village governments 88 Appendix 5. Institutions, Leadership and Civil Society in the Sample Villages District Village Institutions Leadership Civil Society Kebumen Sarimakmur Purwo deso Gayamulya X X Banyuono Lombok Tengah Lalandu X X Sukapura X Nusaindah X X Daratan X X Luwu Timur V X Sukasari X X Barujaya X X Randu X X X Panaipanai X X Barru X X Kenari X X Galunggung X V Blora X X X Sambit (+) X Bandungan (-) X Lombok Timur X X X Lombokjaya (+) X V V Panjang (-) X X Note: A tick (V) means present and working effectively 89 Appendix 6. Planning in the Sample Villages District Village RPJMDes All programs refer Adjusted to SKPD RPJMDes Revised to RPJMDes Kebumen Sarimakmur x x Purwo deso x x Gayamulya x x Banyuono x x Lombok Tengah Lalandu Sukapura Nusaindah Daratan Luwu Timur Sukasari x x Barujaya x x Randu X x x Panaipanai X x x Barru Kenari X x Galunggung X x Blora Sambit (+) x x Bandungan (-) x x Lombok Timur Lombokjaya (+) x x Panjang (-) x x x x Note: A tick (J) means present and working effectively o(D 0 -E E > -r) Q) -o U) 0_ Q 0 &o? -c-U -C CD co o Q- -u Q- C - z z z z CO - E -E .u ~~ U) 0' 0 - U) o 5o 0 Q - - o ó -0 2 0 o o G o o - 0 c o o0 t C c cM -U c > - - c r p G -- -a - ¯ a_ >~ 0- >~ 5 >~ O_c 0 -Qe Cc .) ru ) -: >- -c Q rC - E O E OO E C C l O)0 ~ _- E E E E - E r -E E - - >> - e E E> CO- ru >-rC -c cl > cj < ' -0 m .E ruCr - . CO - r.u. CO E D - -- .u . E ru -oc c¯ -U - c -o >-c , «O E. oo cE e co o -J > oe -3n -o o CL COE- -o - E c>U- - W m w z ru-EEC c wo EE > oC 0 . 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Policies, Programs and other Initiatives to Promote Integration District Policy Program Other initiatives Result Regulation of the Kuota Kecamatan Success District Head 117/2011 (subdistrict quotas) concerning the procedure for implementing regional government development work plan meetings, which governs the implementation of development planning processes to the subdistrict level. Meetings at the village level are governed by annual circular letters of the district head. Regional Regulation PDPM (Program Daerah 20/2012 concerning Pemberdayaan Masyarakat) accelerating poverty alleviation, which among Kebumen others, governs the establishment of village poverty alleviation acceleration coordination teams (TKP2Kdes) 2012 circular letter of the district head (annual) concerning technical guidelines for implementing regional government work unit forums Regulation of the District Head 11/2007 concerning subdistrict quotas. 2012 draft regional regulation concerning PDPM Lombok Tengah Regulation of the PID (Paket Infomasi Desa) Failure District Head 10/2009 which aimed to provide concerning guidelines initial information to the for implementing village villages about what will development planning be done by the regional meetings. government work units Regional Regulation P2MP (Program Decree of the Failure, because 8/2008 concerning Pemberdayaan Masyarakat Head of the no personnel able community-based planning, Perdesaan) Village Community to implement the development, use and Empowerment regulation at the exploitation of peri-urban Agency 21/ 2009 village level, and no areas concerning P2MP technical assistance technical guidelines from the district Luwu Timur Regional Regulation 9/2008 Desa Paripurna (Program concerning village/ward that requires regional development planning government work units to "target" the three most disadvantaged villages in a subdistrict every year) 94 District Policy Program Other initiatives Result Regulation of the PIK Paket (Percepatan PIK Paket technical PIK Paket phase District Head ....12012 Implementasi Kegiatan guidelines 1 is running but concerning the PlK Penanggulangan has not been very Package (Accelerating Kemiskinan Terpadu successful due Implementation of or Accelerating to elite capture. Integrated Poverty Implementation of For Phase 2, the Alleviation Activities) Integrated Poverty TOPs are being Alleviation Activities revised to mitigate Package) ran in 2010, then elite capture stopped, and is planned to in determining start up again in 2013 with targets. Regulation of the District stronger SOPs and TOPs; Annual training Head concerning PNPIM There is also a village for village cadres Integrasi (in 2012, a owned enterprise program in facilitating Regulation of the District with a revolving fund of DIR development Head concerning PNPM 18 million per village planning meetings Integrasi for Barru District was being prepared. It will Barru function as the replacement should PNPM Nasional end) Technical manual on implementing village/ward development planning meetings, published by the Village Community Empowerment Agency and revised annually Allocation from ADD for the Prima Kesehatan program, which focuses on sanitation infrastructure development Letter of the District - Guidelines from the Running, but not Head 50/2012 concerning Village Community optimally implementation of Empowerment development planning Agency on village meetings in the context community Blora of preparing village participatory development activity plans. development planning; study of methods and technical instruments Lombok Timura 95 Appendix 9. Report on the Observation of a MDKP Meeting in Banyuono Village Observation Report MDKP Meeting Type of Activity MDKP and MDST meeting in Banyuono village Agenda Discussion of program proposals and selection of MAD delegates in Karanggayam subdistrict Time of observation 09.15 -11.30 Classification of participants 90 women (including: Karanggayam subdistrict facilitator, village head, PKK, cadres, community leaders, villagers receiving loans, villagers applying for loans, other villagers, poor households, village officials) Majority women attending, but meeting chaired by men, only the election of delegates and gathering community aspirations were led by women. Observer M. Imam Zamroni Description of Activity Dynamics Description of How Decisions Are Made At this meeting, the majority of women attending were Decisions made: carrying notebooks and were busily noting down what the 1.2.5% deduction from SPP borrowers. Deductions will be village head or whoever was addressing the forum was saying. made when loans are received. To be deposited as cash Some of the women attending had young children with them. to be withdrawn if village raised funds are needed for While listening to the village head's address, some were development. The original proposed deduction was 5% of rocking their children to sleep.20 the total loan, and the women then proposed 2.5% and this was approved. The 2.5% deductions from the total loan of The meeting began with an opening address by the village each individual will be used as savings for the participants, head, explaining about SPP. He stressed that people should and if needed for development, these funds could be not default on their loans. The total amount of loans received used to reduce the burden on poor villagers. The decision by the community was IDR 195,000,000 "This must be repaid", making process was led by the village head. The consensus he explained in Javanese ("ra ketang adhol kotang you tang was unanimous. kudu nyaur utang") (literally, "Even if it means having to sell 2. Selection of delegates to be sent to the inter-village your bra, the loan must be repaid). meeting at Karanggayam subdistrict. Initially, it was difficult to choose candidates. Then it was agreed that each hamlet One group had borrowed DR 30,00,000 and had not provided would have a delegate, and four women were eventually the collateral the village asked for. Remember that this village selected as delegates. But only three were needed, so one has defaulted, and did not get PNPM funding for 2 years was elected team member. Then the coordinator was (2007-2008) because it defaulted on its SPP loans. We tried elected by ballot: Siswantini (36 votes), Sumarni (9 votes), contacting the villagers who had this debt to get them to pay Saliyah (6 votes) and Sukarni (3 votes).22 Siswantini was duly it off, and in the end we were able to repay DR 27 million. elected coordinator for the subdistrict MAD. In electing the And eventually we started getting physical development candidates who would represent the Banyuono villagers at under PNPM again, and still do. So we must be sure to the MAD, the participants took into account whether the maintain our performance. candidate would be able to promote the proposals made by the villagers. Then the villagers made their proposals for Announcements made at the meeting included: programs to be taken by the delegates for discussion at the 1. Regarding ID card photos - those who have not done theirs get them done soon, because it is you who will bear the consequences. 2. Regarding repayments - please don't default on payments, because if you do, national government will put a stop to the physical development support. 3. Information about applying for loans under the SPP program 21 One man attended this meeting, sitting at the bacm in the corner. He put forward no proposals and remained quiet. The man was middle-aged (around 45). Perhaps hie Tod been asked to represent his wife and didn't realize that thin meeting was for women only. 2' This is a form of wrsdom that the village community has, because they recognize all hamlets within tanyuono tllage. All have a role, even though only three people were needed for this meeting. 2 In this process offinding candmdates, several participants were selected pr others, hat they did not want to tahe on the role, saying, "I'm retired'. 96 4. Reminder not to quarry in the rivers because it can cause Community proposal realized is the development of an early damage. The talud that was constructed 3 months ago has learning center, complete with learning media. Construction been damaged because of quarrying. of the early learning center is going ahead because land 5. Reminder to villagers who will be making bamboo stakes for belonging to a deceased villager is available for this the talud. Each cluster to provide 25 pieces of bamboo. development. The subdistrict facilitator confirmed this and 6. PNPM MP program implementation report the villagers explained about the status of the land." Don't 7. Plans for development of early learning centers in 2014 let this development be the cause other problems, because in other villages there have been problems resulting from Also discussed at this meeting was the revolving funds from the construction of early learning centers. SPP - request that cash collected from group members be held by the coordinator. Deductions from villagers who No other decisions were made at the meeting. Once the receive capital loans - deductions agreed on. villagers' proposals were noted, it was agreed that these would be promoted at the MAD meeting in Karanggayam After the village head's opening address and presentation, subdistrict, and the meeting was closed. the empowerment facilitator from Karanggayam subdistrict arrived and in essence encouraged the participants to propose programs. The process continued with the reading of the use of PNPM MP funds report by the team leader. After reading the accountability report, the participants were asked "do you approve this report?", to which they replied "yes, we approve it." The meeting continued with the election of delegates who will be sent to Karanggayam subdistrict to participate in the inter- village meeting (musyawarat antar desa - MAD). The next activity was capturing aspirations. The participants began proposing programs, then the subdistrict facilitator reminded them that all proposals must match the programs that are in the village medium term development plan. One of the programs proposed by the village head (oyster mushroom training) was not in the village medium term development plan, and was rejected by the forum, prompting laughter from the participants. At the end of the MDKP, the MIDST began with the reading of the financial accountability report (file attached). The chronology of the damage to the newly constructed talud was also presented: (1) the talud was not constructed the way the villagers wanted it to be - they had wanted to use gabions, but after consulting with the district facilitator, it was discovered that money was already in and it would be difficult to cancel/change and could end up taking longer to get the funds. (2) in the end, the community agreed to the construction of the talud. Three months after completion, there were heavy rains followed by flooding and around 30 meters of the talud collapsed. (3) Sand quarrying using three diggers and hundreds of sand pumps also contributed to the collapse of the talud. The meeting ended at 11.15 because it was Friday and the men had to go to Friday prayers at the mosque. h Inieally four activities were proposed y ). Development of an early learning center 2. Oyster mushroom training (3) Bamboo weaving training 14). Instant ginger drink production training. But after the subdistrict facilitator cross-checed with the village medium term development plan, only development of an early learning center was mettioned, so the other proposals failed and were not used. Bvn tne village heads proposal was rejected, promoting laughter from the participants that such a thneg could happen at this meeting, QUALITATIVE STUDY OF THE PROLIFERATION AND INTEGRATION 97 OF COMMUNITY EMPOWERMENT PROGRAMS CASE STUDIES 98 Box 6. Integration in Kebumen District The integration that happens in Kebumen District was initiated back at the end of 2009, when the VIlalge Community Empowerment Agency alogn with other relevant agencies worked with NGOs and the Plan International Indonesia Kebumen Program Unit to prepare a Poor, Gender and Child Based Participatory Village Development Planning Manual. This was followed by a collaboration between local government and Plan to run training of trainers sessions forvillage developmetn planning facilitators at the district and subdistrict levels. Then, in 2010, local government worked with P2TPD to run training for Village Development Planning Working Groups from 52 target vilages. That year also saw the integration of village development planning with PNPM MP, and preparation of village medium term developmetn plans using the P2DP manual. In December 2010, all villages in Kebumen District had medium term development plans as a reference for development. Since then, Kebumen District has integrated PNPM Mandiri Perdesaan participatory development planning into the regular development planning system, including the village, subdistrict, and district development planning processes. This process of integration, as explained by the Head of Program Planning and Budgeting, Kebumen District Development Planning Agency, happened as follows: The integration was facilitated by the regional development planning agency, village community empowerment agency, which were facilitated by the PNPM program, by accommodating participatory planning....Village communities had to be shrewd, and make sure that the activities they proposed were already in the regional government work unit work plans. So, when the regional government work units are doing their planning.. .for example... if a village... makes a proposal to the district... to save money.. .rather than using its Village Allocation Funds, any proposals that can be funded by the regional government work units can be put forward for the subdistrict quota, and if they aren't approved, only then do they use the Village Allocation Fund. Regarding the integration process, when the village development planning meetings take place, proposals are made to the subdistrict development planning meeting, and any proposed programs that are already in the regional government work unit work plans are forwarded to the regional development planning agency.. and then they choose...the ones that go to the regional government work units will be discussed at their forum, and the proposals from the subdistrict... might go to... PNPM, and their integration is discussed at the regional government work unit forum. When the PNPM and regular development plans are discussed, activities that are included in PNPM don't need to be funded.. or if PNPM has funded this "road", then the rest of it can be funded from somewhere else, so saves money. That way there's integration without any overlap of activities... when integration is done at the planning stage. 99 Box 7. Integration between ADD and Box 8. Community Development and Prima Kesehatan in Barru District Integration in Luwu Timur District The Prima Kesehatan program began in 2007 as a collaboration The community development (ComDev) program run by Vale between Barru District government and JICA, with the district in Luwu Timur distributes a substantial estimated DR 50 billion health authority as the leading sector. Activities under this every year to four subdistricts in which the company operates. program were capacity building for health cadres and public The mechanism for securing these funds used to be fairly simple: health improvement through socialization and training. Since community groups could submit proposals that were approved 2011, on the initiative of the district development planning by the village head, and if deemed feasible by Vale, the program agency, this program was encouraged to accommodate would be run. Considering the impacts of this program, in infrastructure development proposals from village communities 2012, Luwu Timur district government took the initiative to ask under an ADD (Alokasi Dana Desa) funding scheme. Barru Vale to merge its community development program with the district's efforts to integrate Prima Kesehatan with ADD is empowerment programs run by government. a success story reflecting the effectiveness of coordination between agencies at the district level, as the Prima Kesehatan InJuly2012,throughaworkshop,LuwuTimurdistrictgovernment coordinator explained, and Vale agreed that the community development program would adopt the PNPM approach to avoid overlapping and "The Prima Kesehatan program involves four district social envy in the community. This agreement was followed by government work units (health, district development the setting up of ComDev committees in each of the program's planning, village community empowerment, and finance), target villages and subdistricts. Members of these committees so it is through these units that the programs are included village officials and community leaders, who were coordinated. Thanks to God, the coordination has been responsible for selecting proposals from the community, based good; for example lots of other programs under the Village on their respective village medium term development plans. Community Empowerment Agency have been supported by Proposals selected at the village level were then re-selected bya the District Development Planning Agency so infrastructure subdistrict committee that considered the costs and the balance [development] can be accommodated under ADD." of programs across the villages. The proposals that are selected (Interview, male, 35 years, Barru district, 3 November 2012) by the subdistrict committee will then considered by the Vale CSR team for inclusion in the 2013 program plan. At the time To make effective use of ADD funds, the infrastructure this research was conducted, the process was at the stage of development accommodated in Prima Kesehatan planning selection by the subdistrict committees. is provision of household latrines. Other proposals are usually switched to other empowerment programs or are not Although this process is heading in the direction of program accommodated at all. The decision that health infrastructure integration, many still believe that this will not be easy to development would focus on household latrines was made achieve. Many aspects still need to be managed carefully if this because the budget for other infrastructure would be too large integration is to be effective and targets are to be achieved, to be funded by ADD, and also to prioritize the management of in particular to unify the various interests involved in the common diseases in the villages in Barru district - diarrhea and management of the ComDev program, as one member of the skin irritations, which have a proven link to hygiene and waste Vale CSR team explained: disposal, as a health cadre in Kenari village explained, So far we've been running the community empowerment "The main problems here are diarrhea and skin irritations, program using our own approach, but there are other so construction of latrines was proposed at for inclusion in empowerment programs, such as PNPM, thattakea different the village development plan, and it was eventually realized approach. The differences between the two models have under ADD and Prima Kesehatan." (Program stakeholder resulted in different impacts on the target communities, and FGD, male, 25 years, Kenari village, Barru district, 30 produced a difference of opinion between the community October 2012) and government. Because these differences could create problems, the district government, in this case the district head, wants to integrate the two. In my experience, this will be a rocky road initially, because unifying two major interests - the company and the government - will be no easy task. (interview, male, 38 years, Luwu Timur District, 28 October 2012) 100 Box 9. Village Planning and Local Box 10. Empowerment Programs and Minority Government Support in Barru District Groups in Barru District In 2005, the Barru district Village Community Empowerment He goes by the name Sennang. Today, he is known as the best Agency published technical guidelines for development tailor in the Takalasi subdistrict of Barru district. It wasn't easy for planning meeting for villages and subdistricts. At the same Sennang to take part in the training offered by an empowerment time, this agency organized PRA training for 21 village and ward program in his village (Kenari) because the people around him cadres, each represented by one participant. This training was were busy belittling him rather than listening to what he had to organized every year up until 2011, producing seven village say. Even now, some people still call him "gay" in a derogatory cadres per village or ward trained in facilitating the development manner. But for Sennang, none of that stopped him from planning process in their village. For the village community getting on. His responsibilities as the eldest child following the empowerment agency, these technical guidelines and training death of his father spurred him into finding work and earning are a way of improving the quality of planning in the villages a living to support his mother and younger siblings. Sennang by providing competent facilitators who are able to organize badgered the program manager at a meeting to discuss the planning meetings in villages effectively and properly sewing training, At the time this study was conducted, the majority of villages "I asked them if I could take part, and eventually they had positive view of this initiative. Several community groups agreed. Some people didn't want me to participate, arguing thought that the village cadres were performing their role that the training was for women only, but I carried on effectively in facilitating the planning process, particularly in trying to persuade them, and ended up saying 'ku lo iwaja ensuring that proposals were not just the wishes of a particular naobbika, tapi ku gratis kasi' de naobbi-obbika' (I get asked group, as the Balusu subdistrict PJOK explained, to do things that you have to pay for, but not if it's free). Maybe they felt sorry for me, because in the end they let "Having village cadre who facilitate this has improved me take part. They surveyed my house first, and then they village planning. The villagers don't just put forward any old accepted me." (interview, Sennang, 26 years, Kenari village, proposal now. They really look at what the needs are in the Barru district, 31 October 2012) village." (interview, male, 55 years, Balusu subdistrict, Barru district, 29 October 2012) According to Senang, the most beneficial empowerment programs are those that offer activities that build people's Over time, according to one village cadre who has been skills, If a community has skills, they can innovate and think involved in facilitating planning in villages for the past six years, of alternative livelihoods that could increase their household the villagers have started to get fed up participating in all the incomes. Sennang believes that skills are the foundation for planning processes. For two reasons: first, too few of their making money. proposals were realized; and second, the villagers are familiar with the PRA process so the people who attend the meetings "For someone like me, the most useful are skills training tend to ask to discuss the proposals straight away, without courses. Because if I'm just given money, it'll be gone in discussing the problems and prioritizing them first. As he a day; but if I'm given skills, I can always make money." explained, (interview, Sennang, 26 years, Kenari village, Barru district, 31 October 2012) "We need new techniques, so that the villagers have the patience to go through the whole process, not just jump In his view, the people in his village are not creative enough directly to discussion of the proposals." (interview, male, 43 start businesses because they just wait around for government years, Kenari village, Barru district, 1 November 2012) support. In fact, they've had a lot of support from government to help improve their welfare through skills training. According to Sennang, even if you have skills, unless they are developed, they will not be of any use. "I've opened up business in a rented shophouse. Unless you use the skills you've been trained in, what would be the point of the training - it wouldn't make any difference, it would just be a waste." (interview, Sennang, 26 years, Kenari village, Barru district, 31 October 2012) 101 Box 11. Program Proliferation: Turning Costs into Benefits The number of empowerment programs in the sample villages "...(having lots of programs) takes up time that we need in the past three years has, in general, varied between two and to earn a living" (Basith, program stakeholder FGD, 12. The question is, does program proliferation come at a cost Bandungan, 29 October 2012). to village communities? Are village communities fed up with all these programs? From our visits to the villages, it seems that "The cadres never had meetings, and they knew nothing. all the villages believe that the more programs the greater the So PNPM gave them training and now the cadres are a lot benefits than the costs. People see program proliferation as a better." (Mino, male, 35 years, Sarimakmur stakeholder burden only at the start of the program, and that is only because FGD, 13 October 2012). they don't understand what the program's about or because they haven't been informed about it properly. This is mainly "in my place, even before we'd had a meeting, there were true for infrastructure programs that require contributions in complaints. But after people had been given information the form of land belonging to the villagers for the construction and it had been discussed at prayer meetings and other of the infrastructure. But this does not mean that there are meetings, they were in too. Community awareness was no complaints about or costs associated with training under great. Most people volunteered their labor. The only help empowerment programs. we got was the cement. The sand and what-not came from the villagers. Five people made a cubic meter It was a This burden might give rise to complaints or grievances , or burden to begin with, but not after a while. Here are Friday opposition from villagers whose land is situated within the donations, too. (Wasikan, Sarimakmur stakeholder FGD). construction location. However, slowly but surely these feelings are abated when other villagers explain about the program Program proliferation has brought many benefits to the or the benefits that could come from having the project. This communities. With the improved infrastructure, transport is information is typically communicated at regular meetings in the easier, journeys are faster Having a clean water supply near to village or through unofficial forums. where they live and having good roads and bridges allows the government to deliver improved services to the villagers. "...Yes, there might be. Apparently in Lemah Rata (hamlet), there were some coconut trees that were growing where the "...for example, if the ward head's out in the fields, and road was going to be widened. When they wanted to cut someone needs something signed, he can just go out to the them down, some people made real fuss, said they couldn't fields and get it done.(Bowo, program stakeholder FGD, cut them down. But it was okay with their neighbors. So Bandungan, 29 October 2012). what do you do? (Rusmini, female, Sarimakmur stakeholder FGD) "Because there is a road from the farmland to the village. There's a public toilet where we can wash and go to the "...but they benefit too, because there'll be a road, and the toilet, so there's no more open defecation." (Jalil, male, value of their land will go up too." (Asmungi, male, 23 years, program stakeholder FGD, Bandungan, 29 October 2012). villager FGD, Sarimakmur, 14 October 2012) 102 Box 12. Enough of Contributing Sometimes it's fate that a community's basic need for health Because they had already accepted the offer and it was care facilities cannot be met by government alone. This is something that the villagers needed, the village meeting finally what the people of Lalandu village in Lombok Tengah believe. agreed to go ahead with building the village polyclinic together. The proposal for development of a village polyclinic that they Every day, each hamlet had to sent at least two residents to put forward at the development planning forum was never work on the development. Unlike physical activities under accommodated in the regional developmetn plan, even though other PNPM programs, the villagers had to work for free. And building a clinic was one of the priorities in their village medium- those who were unable or didn't have time to work on the term development plan. The only health services in the village development, were asked for contributions, either in cash, or in had been at the home of the village head, where facilities were the form of bricks, sand or other building materials. limited. This meant that to deliver a baby, a woman would have to go to the primary health centre in Mujur or Ganti. "It's so The experience of building the polyclinic made the villagers expensive. Hiring a motorbike taxi, for example, is DR 10,000. in Lalandu feel that they'd had quite enough of programs that You can go on a motorbike if you're pregnant, but if you're about required such a huge contribution. "We had no choice but to to give birth, you need to go in a car. That costs between DR do it; it really was a burden. How much it cost.. with the price 50,000 and DR 100,000," explained the Lalandu hamlet head. of land and everything. So we've had enough; we don't want any more offers of physical development under the Generasi They hit the jackpot in 2011 when the PNPM Generasi program program," admitted Jumalim. offered them an opportunity to build a village polyclinic. "I was asked, 'are you ready or not to build a polyclinic?', and I said, The perceived costs of the development process aside, the 'yes of course, the community really needs one. We've been Lalandu villagers are now able to enjoy the village polyclinic running a polyclinic out of the village head's house'," said the that they built themsleves. Pregnant and birthing women are village head. The good news was that this chance came without able to make use of the facilities the polyclinc provides, and the need to compete in the way that they would if the offer had which include simple post-natal in-patient facilities. And it's not come from PNPM MP. "If it had been under the MP program, we only the residents of Lalandu that benefit from the polyclinic; wouldn't have stood a chance. But under the Generasi program, neighbouring village do too. "People from Kidang village use we didn't have to compete," explained Jumalim, head of the facilities, too," said the Lalandu hamlet head. people's welfare in the village. Howevers like other empowerment programs, development of the village polyclinic building under PNPiM Generasi also required a contribution from the community. It was this requirement that turned out to be a problem. The percentage contribution required for this development was substantial; far greater than it would have been under the PNPpM rMP program. "It worked out as a contribution of more than 30%. Under the tMP program the maximum is just 10%," said Jumalim. 103 Box 13. Couldn't be Bothered In 2008, at a time when participatory development was barely When all the hamlets had finished their meetings, the village institutionalized in Lombok Timur district, Lombokjaya village development planning process began. "We invited everyone. was able to come up with its own innovation: integrating We gave out blank invitations, and the hamlet heads filled participatory development planning with regular village them in, addressing them to the delegates," explained the development planning. Ironically, the planning process they village head. It was at this forum, they tried out the participatory used was based on the Manual of Participatory Development planning techniques. The participants were divided into groups. Planning for Village Communities, published by Lombok Timur One discussed the seasonal calendar, one the village's problems, district government. Its performance won Lombokjaya an award and another the village's potentials. for the village with the best planning in West Nusa Tenggara. This new method proved to be a breath of fresh air for those "Basically, I couldn't be bothered.. .year in, year out discussing attending the meeting. "They loved it ..they'd never done development this, development that," said Lombokjaya anything like it before. Presentations, discussing things among village head, starting the story behind the preparation of the themselves.. they liked it," recalled the village head. Scheduled village medium term development plan as the reference for from morning to evening, this village development planning development in his village in 2008. He happened to come across meeting in Lombokjaya took three days to rank the proposed a copy of the participatory planning manual in a cupboard in activities and form the Planning Team. his office. "This looks good," he remembered thinking when reading the manual. Because the copy he found in the office Not only did this participatory method of development was half eaten by termites, he asked Lombok Timur village planning produce a village medium term development plan, it community empowerment agency for a new copy. also produced agreements on how the development activities would be implemented. One thing that was agreed on was Armed with this information, the village head introduced the which activities the village would do itself. Por example, making participatory planning method at a meeting with community irrigation gates, because few funds were needed, it was agreed leaders, village officials and the boards of village institutions. that the community could do that itself. "How about using this concept at the planning meeting?" he asked the people at the meeting. When all of them agreed, Using the village medium term development plan that was a schedule was drawn up for the hamlet planning meetings, made in 2008, the annual development planning process to kick of the process of drafting the village medium term (village development activity plan) was plain sailing. In fact, development plan. The hamlet meetings were attended by the this development plan has never been reviewed. However hamlet head, members of village institutions from that hamlet, the village head did admit that in practice the ranking of the and community leaders. As well as deciding which proposals activities was not used as the reference so much as which hamlet from the hamlet to take to the village planning meeting, the was next in line for an activity. "For example, if it was the turn hamlet meetings selected five people to represent their hamlet of hamlet A, if there was a proposal in the village development at the village planning meeting, aside from those who held plan couldn't be done that year then the hamlet would ask if office in village institutions. "The hamlet planning meetings an activity could be done there instead," explained the village were held four nights in a row.. .I took a peek, and they really head. were having meetings," said the village head. 104 Box 14. Getting Programs is Easy In the past three years, one village in Blora district has received various programs from national and local government, including community empowerment programs and support programs for other sections of the community. These programs include PNPM MP, a women's credit union program under the PNPM program, Desa Berkembang, and a biogas program. The biogas program, which is run by the Blora district environmental affairs agency, aims to encourage people to switch from using kerosene to biogas produced from cattle or buffalo manure as cooking fuel. This program was launched in 2011 after the village head met a staff member from the enviornmental affairs agency. Seucring this program was relatively easy because, unlike other programs, there was no need for meetings or competition at the subdistrict level. Instead, it began with the village head introducing himself and chatting to this staff member and asking him where he was from. He replied that he was from a village in Blora that was in the middle of submitting a proposal for a bigoas program for his village and another village. The village head then asked if it would be possible to get his village involved in the program, and the response was it could as long as it made a proposal. Returning home, the village head drafted a proposal for the biogas program to the district enviromental affairs agency. After waiting several weeks, the funding was reeased and the biogas program was implemented in his village, with 14 biogas stoves for 14 households in the village. The stoves were given to families that had cows or buffalo, because the biogas is produced from their manure. 105 Box 15. Konsorsium LSM in Lombok Tengah Konsorsium LSM support in Lombok Tengah focuses on village With all the support process it was performing, the consortium development planning aimed at producing a village strategic claimed that vertical integration was underway. This was plan. Since it began in 2006, Konsorsium LSM has agreed to reflected in the percentage of village proposals accommodated work with Lombok Tengah district government. The consortium in the district development plan, which reached 77% in 2007. directly supports the preparation of village strategic plans in 22 Despite this claim, in subsequent years this percentage villages, and the district government handles the rest. decreased consistently. It was these strategic village plans that later formed the basis It shortcomings aside, the consortium still sees budget for the switch to village medium term development planning allocation as a challenge to integrating village participatory in 2007. In addition to the consortium's partnership with district planning into the regular planning process. The consortium government, contributing to the program's success was its admits that they continue to find it difficult to monitor local collaboration with the managers of empowerment programs budget planning processes. The planning process, which starts in Lombok Tengah, such as PNPM MP and PNPM Perkotaan with the drafting of the general budget policy and preliminary (P2KP). These empowerment programs, which were initiated by budget calculations, is still closed, even though this forms the national government, also helped promote the preparation of basis for drafting the regional budget annual activity plan (RKA village medium term development plans. APBD). This is seen as a constraint and the main challenge to the consortium's efforts to support village participatory planning. As well as promoting village planning, both under the strategic planning model and the medium term development planning Another challenge the consortium perceives is the sectoral model, Konsorsium LSM Lombok Tengah also supported the egoism in the regional government work units. Frequent process of getting village proposals accommodated in the coordination has done little to dampen this egoism. As the district plan. Here, as well as working with PNPM actors, support consortium's coordinator explained, the regional government staff from the consortium took turns to with the subdistrict workunitsstillcalculatethecostsandbenefitsofaccommodating facilitators to facilitate and support the planning process at village proposals put forward by the consortium. And even the subdistrict level. Then, at the district level, the consortium PNPM looks at the costs and benefits of coordinating with local also supervised and monitored the planning process by being government and NGOs. actively involved on the district poverty alleviation coordination team. GLOSSARY ACCESS Australian Community Development and Civil MTsN Madrasah Sanawiyah Negeri / State Islamic Junior Society Strengthening Scheme Secondary School ADB Asian Development Bank MAD Musyawarah Antar Desa / Inter-Village Discussion ADD Alokasi Dana Desa / Village Allocated Funds MI Madrasah lbtidaiyah / Islamic Primary School ADD Pemberdayaan Alokasi Dana Desa Pemberdayaan / MKP Musyawarah Keompok Perempuan / Women Village Allocated Fund for Empowerment Discussion Forum ok) APBN Anggaran Pendapatan dan Belanja Negara/ MMDD Menggagas Masa Depan Desa / Discussion on National State Budget Village Future APE Alat Peraga Edukatif / Educational Aids Scheme MTS Madrasah Sanawiyah / Islamic Junior Secondary AusAID Australian Agencu for International Development Bahteramas Membangun Kesejahteraan Masyarakat Musrembang Development Planning Meeting Building Community Welfare Musrembangdes Village Development Planning Meeting Baruga Sayang Balai Rujukan Keluarga dan Pusat Layanan NGO Non-governmental Organization Pembangunan / Family Advice and Development Service Center NICE Nutrition Improvement through Community Empowerment BPD Badan Permusyawaratan Desa / Village Council BIRDBadn PemusawartanDesa/VilageCoucil Pamsimas Penyediaan Air Minum dan Sanitasi Berbasis BPMD Badan Pemberdayaan Masyarakat Desa / Village Masyarakat / Community Based Sanitation and Water Community Empowerment Agency Supply Scheme CDD Community Driven Development PAUD Pendidikan Anak Usia Din / Early Learning Center CSR Corporate Social Responsibility PDPM Program Daerah Pemberdayaan Masyarakatl DPRD Dewan Permusyawaratan Rakyat Daerah / Local Regional Community Empowement Program Parliament Pemprov Pemerintah Provinsi / Provincial Government FGD Focus Group Discussion PIK Paket Paket Informasi Kecamatan / Subdistrict Gerhan Gerakan Nasional Rehabilitasi Hutan dan Lahan / National Forest and Land Rehabilitation Scheme PKD Pengkajian Keadaan Desa / Village Assessment Gernas Kakao Gerakan Nasional Peningkatan Produksi PKK Program Kesejahteraan Keluarga / Family Welfare dan Mutu Kakao / Family Income Improvement Scheme and Empowerment HH Household PNPM Program Nasional Pemberdayaan Masyarakat/ IDT Inpres Desa Tertinggal/ Development Program for Poor Villages PNPM GSC PNPM Generasi Sehat dan Cerdas / PNPM for ILGR World Bank Initiatives for Local Governmance Reform Jamkesda Jaminan Kesehatan Daerah / Regional Health PNPM Hijau PNPM Green Insurance PNPM Integrasi/P2SPP Program Pengembangan Sister Pembangunan Partisipatif / PNPM to Develop Participatory Jamkesmas Jaminan Kesehatan Masyarakat / Community Development System Health Insurance JICA Japan International Cooperation Agency PNPM KIP PNPM Kelautan dan Perikanan / PNPM Marine KBR Kebun Bibit Rakyat/ Community Nursery Program and Fisheries Konsorsium LSM NGOs Consortium PNPM MP PNPM Perdesaan / PNPM Rural KPM Kader Pemberdayaan Masyarakat/ Community PNPM Mandiri Pangan PNPM Food Sufficiency Empowerment Cadre PNPM Pariwisata PNPM Tourism LGSP Local Government Support Project PNPM Penguatan PNPM Supporting programs MA Madrasahrasahahb/iIslamic/SenioriSecondary School PNPM Perkotaan PNPM Urban Sapa The Coordinating Ministry of People's Welfare PNPM Pemukiman PNPM Housing Strategic Alliance for Poverty Alleviation Sarbina Sarjana Pembina / Graduate Advisors, a national PNPM PISEW PNPM Pengembangan Infrastruktur Sosial movement to improve cocoa production and quality Ekonomi Wilayah / PNPM Mandiri Regional Infrastructure for Social and Economic SD Sekolah Dasar/ Elementary School PNPM PPIP Program Pengembangan Infrastruktur SDN Sekolah Dasar Negeri / State Primary School Perdesaan / Rural Infrastructure Development Program (PNPMAgriculture System PNPM PUAP Pengembangan Usaha Agrbisnis Perdesaan / Developmentod Rural Agribusiness SKPD Satuan Kerja Perangkat Daerah / Local Government Working Unit Podes Pendataan Potensi Desa / Village Potential Data Poskesdes Pos Kesehatan Desa / Village Health Post Terpadu - Unit Pengelola Kegiatan / Integrated Crop PRA Participatory Rural Appraisal Management Field School -Activity Management Unit SLTA Sekolah Lanjutan Tingkat Atas / Senior Secondary PUM-KUBE Program Usaha Mina Perikanan / Credit School Program for Fishermen SLTP Sekolah Lanjutan Tingkat Pertama / Junior Secondary Puskesmas Pusat Kesehatan Masyarakat / Primary Health School Center Pusling Puskesmas Keliling / Mobile Primary Health Center SMK Sekolah Menengah Kejuruan / Vocational Secondary Pustu Puskesmas Pembantu /Auxiliary Primary Health School Center SMP Sekolah Menengah Pertama / Junior Secondary Posyandu Pos Pelayanan Terpadu / Integrated Health Post School PPK Program Pengembangan Kecamatan / Kecamatan SMPSatap Sekolah Menengah Pertama Satu Atap / Joint Development Program (KDP) Primary and Junior Secondary School PPLS Pendekatan Program Perlindungan Sosial / Social SMU Sekolah Menegah Umum / Senior Secondary School Protection Program Data Collection SPP Simpan Pinjam kelompok Perempuan / Women's PSF PNPM Support Facility Saving and Loan Program under PNPM Rural P2DTK Program Pembangunan Daerah Khusus dan SOP Standard Operating Procedure Tertinggal / Development of Special and Disadvantaged Regions Progra, TK Taman Kanak-Kanak / kindergarten P2KP Program Penanggulangan Kemiskinan Perkotaan / Unram Universitas Mataram Urban Poverty Program UP2K Usaha Peningkatan Pendapatan Keluarga P2MP Program Pemberdayaan Mandiri Perdesaan / Rural Household Income Improvement Scheme Empowerment Program UPPKS Usaha Peningkatan Pendapatan Keluarga P3DT Program Pembangunan Prasarana Pendukung Sejahtera / Household Income and Welfare Improvement Desa / Program for Development of Village Support Scheme Infrastructure URSI Urban Sanitation and Rural Infrastructure RA Raudatul Aftal / Islamic Kindergaten Raskin Beras untuk Keluarga Miskin / Subsidized Rice for Poor Family RKPDes Rencana Kerja Pembangunan Desa /Village Annual Development Plan RPJMDes Rencana Pembangunan Jangka Menengah Desa / Village Medium Term Development Plan RT Rukun Tetangga / Neighborhood PNPM Support Facility (PSF) Jl. Diponegoro No. 72 Menteng Jakarta Pusat 10310 Te: (021) 29856000 Website: www.pnpm-support.org PSF Online Library: www.psflibrary.org Email: info@pnpm-support.org t @pnpm_support I PNPM Support Facility (PSF) ;Psf Australian THE WORLD BANK Aid US- TEO