TAKUSHOKU UNIVERSITY
IMPROVING PARTICIPATORY DEVELOPMENT PROJECT:
CAN THE INCREASED COMMUNITY PARTICIPATION AT PREPARATION AND PLANNING STAGE GET THE INCREASED COMMUNITY
CONTRIBUTION?
A THESIS SUBMITTED TO
THE GRADUATE SCHOOL OF INTERNATIONAL COOPERATION STUDIES IN CANDIDACY FOR DEGREE OF
MASTER OF ARTS IN
INTERNATIONAL DEVELOPMENT STUDIES
BY
MUHAMMAD DANIAL
APPROVED BY
TAKUSHOKU UNIVERSITY
IMPROVING PARTICIPATORY DEVELOPMENT PROJECT:
CAN THE INCREASED COMMUNITY PARTICIPATION AT PREPARATION AND PLANNING STAGE GET THE INCREASED COMMUNITY
CONTRIBUTION?
A THESIS SUBMITTED TO
THE GRADUATE SCHOOL OF INTERNATIONAL COOPERATION STUDIES IN CANDIDACY FOR DEGREE OF
MASTER OF ARTS IN
INTERNATIONAL DEVELOPMENT STUDIES
BY
MUHAMMAD DANIAL
CONTENTS
Acknowledgement ... vi
Chapter 1. Introduction ... 1
Chapter 2. Housing and Settlement Development in Indonesia ... 7
(1) Housing and Settlement Development Policy ... 7
(2) Participatory Development Project in Indonesia ... 12
• Neighborhood Upgrading Shelter Sector Project ... 14
• The National Program of Community Empowerment for Rural Area ... 17
• The National Program of Community Empowerment for Urban Area ... 19
(3) Community Participation in Development ... 22
Chapter 3. Field Research in the Implementation of Neighborhood Upgrading Shelter Sector Project ... 31
(1) Conceptual Framework ... 31
(2) Methodology ... 33
(3) Kasemen District, Serang City ... 34
(4) Group Analysis ... 37
Chapter 4. Analysis of Community Participation in the Implementation of Neighborhood Upgrading Shelter Sector Project ... 43
(1) Community Participation on the Implementation of Participatory Development Project ... 44
• General Framework of Project ... 45
• Project Implementation at Community Level ... 52
(2) Community Participation on the Implementation of Neighborhood Upgrading Shelter Sector Project ... 64
• Preparation Stage ... 64
• Planning Stage ... 70
• Implementation Stage ... 74
• Evaluation Stage ... 78
• Community Contribution ... 79
Chapter 5. Conclusion ... 87
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FIGURES
1.1 Project Cycle of NUSSP ... 5
2.1 National Policy and Strategy for Housing and Settlement Development 10
2.2 Project Cycle of NUSSP at Community Level ... 16
2.3 Project Cycle of Rural PNPM Project at Community Level ... 19
2.4 Project Cycle of Urban PNPM Project at Community Level ... 21
2.5 Community Development Process ... 25
2.6 Ladder of Citizen Participation ... 29
3.1 Conceptual Framework of Research ... 32
3.2
Map of Serang City ... 353.3 Percentage of Infrastructure Access in Serang City Year 2006 ... 36
4.1 Community Participation in Participatory Development Project ... 58
4.2 Government and Community’s Fund in Participatory Development Project Implementation ... 59
4.3 Community Participation in NUSSP ... 80
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TABLES
3.1 Population in Serang City Year 2006 ... 36
3.2 Population in Kasemen District Year 2008 ... 37
3.3 Poor People in Kasemen District Year 2008 ... 38
3.4 Education Facility in Kasemen District Year 2008 ... 39
3.5 Road Condition in Kasemen District Year 2008 ... 40
3.6 Education of Households in Kasemen District Year 2008 ... 40
3.7 Slums Area in Kasemen District Year 2008 ... 41
3.8 Water Supply and Sanitation Access in Kasemen District Year 2007 ... 42
4.1 Framework of Participatory Development Projects ... 50
4.2 The Implementation of Participatory Development Project ... 61
4.3 Site Survey in Kasemen District ... 67
4.4 Neighborhood Upgrading Plan in Kasemen District ... 72
4.5 NUP Implementation in Kasemen Sub-district ... 74
4.6 Constructed Infrastructure in Kasemen Sub-district ... 74
4.7 NUP Implementation in Sawahluhur Sub-district ... 75
4.8 Constructed Infrastructure in Sawahluhur Sub-district ... 75
4.9 NUP Implementation at Banten Sub-district ... 76
4.10 Constructed Infrastructure in Banten Sub-district ... 77
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ABBREVIATIONS
ADB : Asian Development Bank
AMPL : Water Supply and Environmental Sanitation APBD : Local Annual Budget
APBN : National Annual Budget
BPD : Sub-district Representative Council CBO : Community-based Organization CSG : Community Self-help Group LCO : Local Coordinating Office
LPM : Sub-district Empowerment Organization MTDP : Medium-term Development Plan
NGO : Non Governmental Organization NUP : Neighborhood Upgrading Plan
NUSSP : Neighborhood Upgrading Shelter Sector Project PDAL : State-Owned Wastewater Treatment Company PDAM : State-Owned Water Supply Company
Perumnas : Stated-Owned Housing Company PLA : Participatory Learning and Action
PNPM : The National Program of Community Empowerment PRA : Participatory Rural Appraisal
RP4D : Local Development Plan of Housing and Settlement
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ABSTRACT
In Indonesia, the limited capability of government and the expansion of slum areas have become the main problems in the effort to improve settlement for the low-income family. It is also worsened by limited capability and interest of the communities in understanding their settlement conditions. Since 2004, Indonesia Government has launched Neighborhood Upgrading Shelter Sector Project (NUSSP) to help living conditions improvement of the urban poor. The implementation of NUSSP in Kasemen District Serang City shows that there is a different community contribution among sub-districts which have participated in NUSSP.
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within NUSSP implementation located in Kasemen district, which are Kasemen sub-district, Sawahluhur sub-sub-district, and Banten sub-district.
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CHAPTER 1
INTRODUCTION
The improvement of the quality of life of human beings is the first and most important objective of every human settlement policy (The Vancouver Declaration on Human Settlement 1976). As a part of countries assembled at the United Nations Conference on Human Settlements in Istanbul, Indonesia Government has also endorsed the universal goals to ensure that adequate shelter can be provided for all people and make human settlements safer, healthier and more livable, equitable, sustainable and productive (Istanbul Declaration on Human Settlements 1996). The Summit’s Millennium Declaration has also set up commitments in human rights, good governance and democracy. This declaration has set up a road map which is translated into 8 goals and 18 targets to reduce poverty, hunger, disease, illiteracy, environmental degradation and discrimination against women1
According to the Cities Alliance Action Plan, slum is defined as neglected part of cities where housing and living conditions are appallingly poor. Poverty and inadequate responses on housing development cause slum condition. One of most frequently mentioned as characteristics of slum is the lack of basic services. Lack of . For housing and settlement sector, the key target is Target 11 which is to have achieved a significant improvement in the lives of at least 100 million slum dwellers by 2020 (UN Habitat 2003).
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access to sanitation facilities and safe water sources is the main feature, which is supplemented by the lack of waste collection facilities, electricity, footpaths, street lighting and drainage (UN Habitat 2003).
In Indonesia, housing and settlement development is designed to be placed on the framework of improving the dignity and self respect, quality of life and welfare for every Indonesian family (Act no 4 Year 1992 on Housing and Settlement). Other constitutional directives also aim to provide housing access for people in Indonesia, especially for low income family2
National Medium-term Development Plan mentions that the limited government capability has become one of the obstacles in the effort to provide housing for the . Based on Act no 4 Year 1992, Indonesia Government has outlined the National Policy and Strategy of Housing and Settlement as a reference for housing and settlement development based on the integration of social, economy, and environmental development, good governance and sustainable development principles.
The National Policy and Strategy of Housing and Settlement aim to ensure that all citizens can live in a decent house with a healthy environment, safe, harmonious, productive, and sustainable. General strategy chosen to achieve the goal is by empowering community and improving actor’s roles in housing and settlement development, especially housing for low income family. Citizen has an equal right and opportunity to participate in housing and settlement development process. Participatory development has become one of key elements in development strategies and development cooperation. By participatory development, people are stimulated to be creative, participate in productive processes, and share their benefits.
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low-income family. The government has made efforts to provide settlement infrastructure simple house areas which are inhabited by the low income family. However, government capability to support the provision of such infrastructure and facilities is still limited. Other main problem is the expansion of slum areas. The extent of slum areas reached 40,053 hectares in 1996, and it rose to 47,500 hectares by 2000 which is dispersed at 10,000 locations and inhabited by around 17.2 million persons (National Medium-term Development Plan 2004-2009). This slum areas extension is in line with the growth of the population and the increasingly uncontrolled growth of primary cities that act as the centers for attracting increased migration. It is worsened by limited capability and interest of the communities in understanding their settlement conditions.
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year, in line with population growth. In addition, the increased slum areas has also been induced by the limited capability and concern of communities in understanding settlement improvement activities.
Kasemen District is one of 6 districts located at Serang City. Its area is about 67,11 km2 wide which is divided into 11 sub-districts. In Kasemen District, NUSSP was implemented on 2008 by 3 (three) sub-district which are Kasemen Sub-district, Sawahluhur Sub-district, and Banten Sub-district. The implementation of NUSSP in Kasemen District Serang City has shown that there is a different community contribution among sub-districts which have participated in NUSSP.
In this thesis, community participation is analyzed through a case study on the implementation Neighborhood Upgrading Shelter Sector Project in Kasemen District that aims to analyze the similarities and differences in project implementation process at community level and results of three sub-districts in Kasemen District, Serang City, Indonesia. It will be done by looking at community participation in preparation and planning stage and its relationship to the contribution of community in NUSSP implementation.
This research set up the hypothesis about the influence of community participation in preparation and planning stage on community contribution. The hypothesis of research is by increasing community participation in preparation and planning stage, the contribution of community can also be increased.
The research questions which can be raised are:
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2. How did Neighborhood Upgrading Shelter Sector Project target community contribution differ?
3. What is the relationship between community participation at preparation and planning stage and community contribution?
This research aims to discover the influence of community participation in preparation and planning stage on community contribution at implementation stage. Particularly, this research will analyze the participation of community in preparation, planning, and implementation stage in Neighborhood Upgrading Shelter Sector
Project Preparation Stage
• Project Launching
• Consultant Training
• Project Orientation
• Consultant Work plan
Project Implementation Stage
• Monitoring and Evaluation
• Project Sustainability Facilitation
Community Level
• District and sub-district Socialization
• Problem Reflection
• Community Organization preparation and formation
• Site survey
• Neighborhood Upgrading Plan preparation
Figure 1.1. Project Cycle of NUSSP
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Project implementation. Therefore, this research can provide information, opinion, suggestion, and recommendation to government in order to enhance community participation in slum upgrading activities.
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CHAPTER 2
HOUSING AND SETTLEMENT DEVELOPMENT IN INDONESIA
As part of the international community, the development of housing and settlements in Indonesia cannot be separated from global agenda on housing and settlements. Indonesia has agreed to participate in implementing sustainable development principles, which is declared together in the United Nations Conference on Environment and Development Rio de Janeiro (1992). Besides, in the Agenda 21 and Istanbul Declaration has also expressed the need of development strategy, which emphasizes community empowerment in the housing and settlements development process.
(1) Housing and Settlement Development Policy
Millennium Declaration and the Declaration of "Cities without Slums Initiative" has emphasized that slums area must be reduced in urban area. To reduce slum area, the declaration needs to be followed up by the concrete steps to achieve urban area without slums, which emphasizes on empowerment strategy through the participation of all stakeholders and community as the main actors.
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people. As a part of national development, housing and settlement development needs to be continuously developed in an integrated and sustainable way. In housing and settlement development process, citizen has an equal right and opportunity to participate.
Derived from Act no 4 Year 1992 on Housing and Settlement, Indonesia Government set up National Policy and Strategy of Housing and Settlement as a references in developing housing and settlement. This national policy was launched in 2002 based on Minister of Settlement and Regional Infrastructure Decree Number 217/KPTS/M/2002 on National Policy and Strategy of Housing and Settlement. This National Policy and Strategy for Housing and Settlement are intended as a guide in the preparation of technical strategy planning, programming, and activities that are relevant and / or in the development of housing and settlements. The goal of this policy is to promote the achievement of targets for housing and settlement sector development through increasing the integrated planning, programming, and implementing of housing and settlement development.
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to ensure that the vision of National Policy and Strategy of Housing and Settlement can be achieved.
1. Policy One: Institutionalize housing and settlement development by involving communities as key actors. It will be achieved by 1) preparing, developing, and socializing the statute in housing and settlement development, 2) strengthening housing and settlements institution which are reliable and responsive, and 3) construction and safety control of building and environment
2. Policies Two: Achieving the fulfillment of housing needs for the whole community, as one of the basic human needs. It will be achieved by: 1) developing financing system and empowering the housing market (primary market and secondary market), 2) developing residential developments, based on community self-reliance, 3) developing various types and mechanisms of housing subsidy, 4) empowering the economic enterprises of low income families, 5) fulfilling the needs of housing and human settlements due to the impact of natural disasters and social conflict, and 6) managing buildings and state houses
3. Policy Three: Achieving a healthy, safe, balanced and sustainable housing development to support community productivity. It will be achieved by 1) improving settlements environmental quality, especially in urban slums and coastal area, 2) developing basic facilities and infrastructure settlement, and 3) implementing decent housing environment.
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Figure 2.1. National Policy and Strategy for Housing and Settlement Development
Source: Minister of Settlement and Regional Infrastructure Decree No.217/KPTS/M/2002 on National
Policy and Strategy for Housing and Settlement Development
In slum areas, the efforts to improve the settlement environment quality cannot be confined on the physical aspects of their environment, such as construction and improvement of basic settlement facilities and infrastructure, but must also be
Vision
Every person (household) in Indonesia is able to meet his needs of a decent and affordable house
Mission
1) empower communities and other key actors 2) facilitate and encourage the creation of a
conducive climate
3) optimize utilization of supporting resources
Policy 2
Achieving the fulfillment of housing needs for the whole community Policy 1
Institutionalize housing and settlement development
Policy 3 Achieving a healthy, safe, harmonious and sustainable housing development to support community productivity Operational Strategy
• developing financing system and empowering the housing market
• developing residential developments
• developing various types and mechanisms of housing subsidy
• empowering the economic enterprises
• fulfilling the needs of housing and settlements caused by natural disasters and social conflict
• managing buildings and state houses
Operational Strategy
• preparing, developing, and socializing the regulation
• strengthening housing and settlements institution
• construction and safety supervision
Operational Strategy
• improving settlements environmental quality, especially in urban slums and coastal area
• developing basic facilities and infrastructure settlement
• implementing good housing environment
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balanced to accommodate the needs of the community social system development and economic empowerment of local communities. It needs to re-actualize participatory development concept, which emphasize on community self-reliance, including gender mainstreaming, institutionalize effective partnership among various development actors, not only government side but also community and private sector side.
According to National Medium-term Development Plan 2004, infrastructure development is decided as an integral part of national development. Indonesia Government has realized that infrastructure is the generator for economic growth. The availability of housing and settlements, including water supply and sanitation, and sustainability management of water resources has become the key factor in community welfare improvement.
In Indonesia, housing development, particularly for lower middle-income people, was spearheaded by the Perumnas as a government-owned developer by constructing new housing in Depok in the mid-1970s which was subsequently followed by a private developer. The main problems faced by Indonesia Government in housing and settlement development are limited capability to provide the infrastructure and housing and the increased area of slums in urban area. Poor people migrate to the cities for looking for jobs. It create a huge need of accommodation, including housing, public facilities, and infrastructure3
The provision of basic facilities and infrastructure by the government to settlement area, which is inhabited by low-income people, is intended to decrease the
.
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In Indonesia, the urban population is increase rapidly. In 1980, urban population is 22,3%, while 30,9% in 1990, and 42,4% in 2000. It is expected that 54% of Indonesia population is in urban area. For more detail information, see Noveria, Mita. 2009. Demography and Urbanization Phenomenon on Housing and Settlement Development: An Agenda of Management and
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selling price of houses in the area. It is expected that inhabitants, especially low-income people, have the ability to access decent houses in healthy area. However, the government's ability to support the provision of infrastructure and facilities are still limited. This factor has become one of the bottlenecks in the provision of housing and its facilities and infrastructure for low-income people and triggers a decline in quality of the area. These conditions usually worsen, and the area becomes new slums area.
In 1996, the slum area was 40 053 hectares and in 2000 increased to 47 500 hectares, which is spread over 10 000 locations and inhabited by an estimated 17.2 million people (National Medium-term Development Plan 2004-2009). Slum area tends to increase annually in line with population growth and increasingly uncontrolled growth of major cities. In addition, the growth of slums (in downtown and periphery area) is also triggered by the limitation of society capabilities and awareness for improving their settlements condition. The other factors are the disharmony between the structure and infrastructure of the city, especially transportation network and residential area.
(2) Participatory Development Project in Indonesia
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level. Tridaya can be viewed as three ways of development. It can be performed through social and human development (such as human resource development, attitude and behavioral change and institution building), economic development (such as developing productive capacity of each household and institutions in the community as well), and physical/environmental development (such as improving house quality, physical infrastructure, including the improvement and maintenance of the natural environment) 4
As mentioned above, the third policy of National Policy and Strategy of Housing and Settlement is to create a healthy, safe, balanced and sustainable housing development to support community productivity. This third policy has been tried to be achieved by implementing some project as efforts to improve the quality of life of low income people. These projects were intended not only to improve the physical aspects of their environment, such as construction and improvement of basic settlement facilities and infrastructure, but must also to re-actualize participatory development concept, which emphasize on community self-reliance. Furthermore, local autonomy policy, which has been launched since 1999, requires creative and innovative leadership of local actors. Community must have innovative to explore local potential resources, including in housing and settlement sector
.
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Neighborhood Upgrading Shelter Sector Project is one of government efforts in handling settlement problem by using participatory development approach. Other
.
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Operational process of Tridaya concept can be seen on Widjanarko, Agoes. Environmentally Sound
and Sustainable Housing Development: Policy and Approaches in Indonesia. Asian Forum,
2003.
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Since 1999, local autonomy has been launched in Indonesia. Local autonomy policy is designed to create more effective and contextual response to local people needs. Some of central government authority on housing and settlement sector have been delivered to be handled by local government. For more detail information, see Yudohusodo, Siswono. Integrated
Settlement and Urban Development Management. Paper for National Congress of Housing and
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projects, which use participatory development approach, are The National Program of Community Empowerment ‘Mandiri’ for Rural Area (Rural PNPM Project) and The National Program of Community Empowerment ‘Mandiri’ for Urban Area (Urban PNPM Project). These participatory development projects were and have been implemented in Kasemen District Serang City.
• Neighborhood Upgrading Shelter Sector Project
In 2004, Indonesia Government launched Neighborhood Upgrading Shelter Sector Project which is intended to decrease poverty and improve the quality of life poverty in urban areas. The urbanization makes almost all of poor people are living in informal areas and experiencing deteriorated level of services and infrastructure provided by local government.
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As target location, Neighborhood Upgrading Shelter Sector Project is implemented in sub-district which has slums area in 32 city/regencies. The cities/regencies must have the commitment to implement poverty reduction program, commitment to build local settlement institution in a participatory way, commitment to support local annual budget, and present community needs.
Project fund can be used to construct street lighting, drainage, toilets and communal sanitation facilities such as group septic tanks, water mains and public taps, waste management, and community facilities. These basic infrastructures are identified through a participatory neighborhood upgrading plan (NUP) performed by communities.
Directorate General of Human Settlement Ministry of Public Works is the project Executing Agency. It forms the Project Steering Committee, chaired by the National Development Planning Board. Meetings of the director-level of Project Steering Committee are held at least quarterly to discuss project progres. These meetings also approve annual project budgets and semiannual progress reports. Directorate General of Human Settlements acts as the technical secretariat and its services to the Project in accordance with the central Government’s role (such as coordinating, monitoring, and providing technical assistance resources).
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Plan participatory process, 3) give examples in implementing values and norms on the implementation of NUSSP, and 4) develop a working partnership in order to empower local community. Some management/development units are formed that will work in all stages of NUSSP implementation activities, which are Environmental Management Unit, Financial Management Unit, and Social Development Unit.
Figure 2.2. Project Cycle of NUSSP at Community Level
Source: General Guidelines of Neighborhood Upgrading Shelter Sector
Community Meeting for preparing project
Community Organization preparation
-Community Cadre selection and training
Community-based
-survey team selection and training
Evaluation Housing and Settlement Development Plan Review
Next phase implementation Site survey
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• The National Program of Community Empowerment ‘Mandiri’ for Rural Area (Rural PNPM Project)
Indonesia Government has launched The National Program of Community Empowerment ‘Mandiri’ for Rural Area (Rural PNPM) to accelerate poverty reduction in integrated and sustainable way. The National Program of Community Empowerment ‘Mandiri’ for Rural Area is the improvement of Kecamatan Development Project. The vision of Rural PNPM Project is to promote community prosperity (basic needs are met) and community self-reliance (able to organize themselves and mobilize local resources.
Rural PNPM Project aims to increase prosperity and job opportunities for low income family in rural areas. It is achieved by encouraging autonomy in making a decision and managing project development. Target locations of Rural PNPM Program are districts in a rural area that have underdeveloped sub-district and poor people. Target Groups are poor households in rural areas, community institutions in rural areas, and local government institutions.
Community Direct Assistance Fund is allocated for each district formulated by using two ways, specifically fund allocation based on the number of left behind sub-district and fund allocation based on the proportion of poor people and the population of the district. Project fund comes from National Annual Budget (APBN), Local Annual Budget (APBD), Community, and Private Sector.
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be funded. To optimize project management, for the district which has more than 20 sub-districts, it is suggested to be grouped in cluster.
There are some development components which can be funded by Rural PNPM Project. The first is basic infrastructure/facilities development and improvement activities that have direct benefit to low income family economic condition. Second is health and education services improvement activities, include the community skills training activities. Third is capacity and skills building of economic business groups especially for business group that close related to local resources. The last is saving and loan for capital increase of woman group activity.
Self-reliance is the willingness and ability of the community to contribute as part of a sense of belongings to Rural PNPM Project. Community contribution is one of community participation in Rural PNPM Project activity by giving fund, raw material, or worker.
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• The National Program of Community Empowerment ‘Mandiri’ for Urban Area (Urban PNPM Project)
Indonesia Government launched The National Program of Community Empowerment ‘Mandiri’ for Urban Area (Urban PNPM Project) in 2008. The
District Meeting
Figure 2.3. Project Cycle of Rural PNPM Project at Community Level
Source: Operational Technical Manual of Rural PNPM Project
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National Program of Community Empowerment ‘Mandiri’ for Urban Area has adopted Urban Poverty PNPM Project, which has been implemented since 1999, to build self-reliance of community and local government in sustainable poverty reduction. This project is highly strategic because it sets the basic of self-reliance community. Community leadership organization is developed as resident representative to promote social capital development in the future and also prepare medium term community program of poverty reduction. There are some targets of Urban PNPM Project implementation.
a. To develop the community self-help institutions that can be trusted, representative, and accountable to encourage community participation.
b. To provide the medium-term development plan of poverty reduction in oerder to achieve the synergy of all poverty reduction project based on community needs c. To develop the community self-help institutions forum at district level and city
level to ensure that poverty reduction project can be integrated
d. To establish the local government fund contribution in Urban PNPM Project implementation in accordance with local fiscal capacity.
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funds provided by Urban PNPM Project are low income families who are identified by the community itself and agreed together by community, through community meeting and local resources mapping. There are various activity components which can be funded by Urban PNPM Project.
Figure 2.4. Project Cycle of Urban PNPM Project at Community Level
Source: Operational General Guidelines of Urban PNPM Project
Community meeting institution forum at district level
Program Integration Development planning process
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a. Environment Development Component (i.e. infrastructure and facilities construction, revolving fund to improve the quality of settlement infrastructure and facilities, etc)
b. Social Development Component (i.e. community self-reliance training to strengthen the local organization, health and education for the low income families)
c. Economic Development Component (i.e. productive business activity and increased capital)
In the implementation, Ministry Public Works act as Executing Agency and establish Project Management Unit to execute daily operational activity. Project Management Unit is supported by National Management Consultant. In community level, community is the main actor. Community self-reliance institution is established by the community, to ensure that all residents have opportunity to involve in decision making process.
(3) Community Participation on Development
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defines development as a process by which the members of a society increase their personal and institutional capacities to mobilize and manage resources to create sustainable and equitably distributed improvements in their quality of life consistent with their own aspirations. The institution refers to the enduring system of structures, rules, customs, and values that shape the behaviors and relationship of people within a society. The above definition is emphasized on the development process and focused on personal and institutional capacity. It also embodies the principles of justice, sustainability, and inclusiveness. (Korten, 1990).
Kenneth Wilkinson states that community can be defined as including three elements: territory or place, social organizations or institutions, and social interaction on matters concerning a common interest. The above definition suggests that community is a contingent phenomenon, dependent on a number of conditions to achieve social interactions in pursuit of mutual interest. Structural change in the community is involved in the development process, especially in how resources are used, the functioning of institutions, and the distribution of resources in the community (Green and Haines. 2002).
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recognition of social structures was a shift in the direction of people-centered development projects (Cernea, 1985).
25 Figure 2.5. Community Development Process
Source: Green and Haines. 2002.
By looking at community development as defined by United Nations, it needs community participation to manage resources utilization, plays institutions function, and redistribute resources to community. For Arnstein, citizen participation is a categorical term for citizen power. She has also defined citizen participation as the redistribution of power that enables the have-not citizens, presently excluded from the political and economic processes, to be deliberately included in the future (Arnstein 1969).
Based on his experiences on rural development, Uphoff (1985) explain that World Bank strongly emphasized the need for community participation. Community participation is important, not only to give more decision-making influence to program beneficiaries, but also to ensure that the program infrastructure and services achieve their original intension. Uphoff (1998) also says that organizational
Community Organizing
Visioning Implementation and
Evaluation
Planning New Policies New Organization
Vision Statement
Create an action plan at the simplest to a comprehensive plan
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structures and roles should be fashioned to support ongoing processes of participation that enlist people’s ideas and ideals as well as their material contributions and management skills. Participation has not only benefits, but also costs, so maximum participation is not likely to be desirable. Time, income opportunities, money and other contributions can become excessive relative to their associated benefits. He also suggests that policy makers, planners, and program managers should think in terms of optimum participation.
There are different ways in which rural people can participate in their own development, the process best begins with decision making, which is the essence of empowerment, such as the principle needs and problems, promising and reasonable solutions, effective and accepted technology. There is increasing appreciation of the value of having local or indigenous knowledge inform development plans and decisions. Better decisions can be made if local people add their knowledge to the development process. Outside knowledge become more effective when it is combined with local knowledge. It is more likely that local people will accept responsibility for carrying out plans and programs if they have been actively involved in shaping these decisions (Uphoff. 1998).
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a. To involve people in design decision-making process and, as a result, increase their trust and confidence in organizations, making it more likely that they will accept decisions and plans and work within the established systems when seeking solutions to the problem.
b. To provide people with a voice in designing and making a decision improve plans, decisions, and service delivery
c. To promote a sense of community bringing people together who share common goals.
In practice, the evolution of participatory development has been accelerated since 1970. Rapid Rural Appraisal (RRA), Participatory Rural Appraisal (PRA), and Participatory Learning and Action (PLA) are some approach used to find out local context and life. RRA is prepared as a method to create faster and better purposes through semi-structured interviews, observation walk, mapping and diagramming, which is conducted by outside professional. In PRA, outside professional facilitate poorer and marginalized people to observe, map, and take an action. Then, PLA was introduced as broader PRA, including other similar approaches and methods (Chambers, 2007).
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(Chambers and Blackburn, 1996). Chambers (1994) also mentions that PRA approaches and methods have evolved and spread into four major sectors. These sectors are natural resources management, agriculture, poverty and social programs, and health and food security.
There are shared principles of RRA and PRA, which are a reversal of learning, learning rapidly and progressively, offsetting biases, optimizing trade-offs, triangulating, and seeking diversity. Other principles have been added to improve community participations, which are facilitating, self-critical awareness and responsibility, and sharing. Outsider professional start the process and then allow community to investigate, analysis, and learn about their situation. Outsider professional also continuously examines their behavior to improve their capability in facilitating community. Sharing information is really emphasized to be done, not only among local people, but also local people and outsider professional, among facilitator, and different organization (Chambers, 1992).
To measure participation level, Arnstein proposes eight levels of participation to illustrate a ladder pattern of participation with each rung corresponding to the extent of citizen’s power in determining the end of product (Arnstein 1969). The ladder of citizen participation places citizens with the power-holders in order to highlight the critical divisions between them. The eight rung of citizen participation can be described by some characteristic.
a. Manipulation. In this rung, citizens are educated and advised by the expert through some meeting, but the main agenda is to emphasize made citizens as public relation or support for powerholders.
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b. Therapy. In this rung, citizens are assumed like mental illness. Citizens are invited to extensive activity, but the essence of this activity is on curing them of their pathology rather than changing their pathologies' sources.
c. Informing. In this rung, citizens are informed by official about their rights, responsibilities, and options, but this process is placed on a one-way flow of information. There is no mechanism to receive information or feedback from citizens.
Figure 2.6. Ladder of Citizen Participation
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d. Consultation. In this rung, citizens are asked to give their opinion, but it is not helped with other types of participation to ensure that citizen concerns and ideas can be realized.
e. Placation. In this rung, citizens became part of public bodies and plays active roles, but they are not accountable to a constituency in the community, and the final decision is still decided by power holders.
f. Partnership. In this rung, citizens and power holders negotiate and agree to share planning and decision-making responsibilities through a joint policy boards. To make more useful, partnership requires an organized power-base in the community, financial resources of citizen group, and human resources.
g. Delegated Power. In this rung, citizens and power holders negotiate to make citizens have dominant decision-making authority over a project or program. h. Citizen Power. In this rung, citizens have power or control, and citizen can
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CHAPTER 3
FIELD RESEARCH ON THE IMPLEMENTATION OF NEIGHBORHOOD UPGRADING SHELTER SECTOR PROJECT IN KASEMEN DISTRICT
(1) Conceptual Framework
This research is structured from the point of view of community participation approach on the implementation of development project in Kasemen District Serang City, which consists of Kasemen sub-district, Sawahluhur sub-district, and Banten sub-district. It aims to assess the influence of community participation in preparation and planning stage on community contribution at project implementation. In view of that, there are three fundamental questions to be answered. The first is how to encourage community participation in preparation and planning stage of NUSSP. The second is how target community contribution differs in NUSSP implementation. The last question is the relationship between community participation at preparation and planning stage and community contribution.
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Community development process of Green and Haines is used to describe the cycle of NUSSP implementation and other development project in Kasemen District. In this context, level of participation among development project and districts is defined on the basis of the ladder of participation proposed by Arnstein.
Research location is selected based on the requirement of a conceptual framework. Research location should be implemented some participatory development project which use a different approach: NUSSP, Rural PNPM Project, and Urban PNPM Project. It also should have different level of community contribution in participatory development project implementation. Other criteria are it should have slums settlement area with limited infrastructure. Based on these
Ladder of Participation
Figure 3.1. Conceptual Framework of Research
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criteria, it is decided that Kasemen district Serang city is a consistent area for this research. As mentioned before, there are 32 regencies/cities that have implemented NUSSP and Serang City is one of them. Serang City is the capital city of Banten Province, and located at western Java Island. Kasemen District is one of 6 districts located at Serang City.
(2) Methodology
The method used in this research is Qualitative Method by using literature, secondary data, interviews, and observation. Literature reviewed in this research is related to community development, community participation, and participatory development project. Secondary data are supported by relevant figures and statistical data related to the national housing and settlement development policy, characteristic of research location, result of NUSSP implementation, and result of other participatory development projects which was implemented in Kasemen District Serang City, which are Rural PNPM Project and Urban PNPM Project. It is collected from the relevant institution, which involve in NUSSP implementation.
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implementation in Kasemen District Serang City, which are Local Coordinating Office (local bureaucrat), facilitator (consultant), CBO coordinator, community self-help group, and residents.
Community participation on participatory development project is conducted by analyzing the implementation of NUSSP, Rural PNPM Project, and Urban Poverty Projec in Kasemen District. Different community contribution in Kasemen district among these participatory development projects is analyzed by looking at a different approach of these projects.
Community participation on NUSSP implementation is conducted by analyzing NUSSP implementation in Kasemen sub-district, Sawahluhur sub-district, and Banten sub-district. Different community contribution among sub-districts is analyzed by looking different practice of NUSSP implementation.
(3) Kasemen District, Serang City
Serang City is the capital city of Banten Province and located at western Java Island. Derived from Serang Regency Banten Province, Serang City is one of 7 regencies/cities in Banten Province, which is established in 2007 based on Act no 32 Year 2007 on the Establishment of Serang City Banten Province.
35 Figure 3.2. Map of Serang City
Source: Local Agency for Development Planning of Serang City
Serang City is divided into 6 districts and 43 sub districts with boundaries as follows:
North : Bay of Banten
East : Pontang District, Ciruas District, and Kragilan District Serang Regency South : Cikeusal district, Petir District, Baros District Serang Regency, and
West : Pabuaran District, Waringinkurung District, Kramatwatu District Serang Regency
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city area. Serang District, as the capital district of Serang City, is inhabited by 181.114 people (up to 35,83% of total population) and its density is the highest in Serang City (up to 6.601 people/km2).
Table 3.1. Population in Serang City Year 2006
No District
Sub-district
Area Population Density
(people/km2) Km2 Percentage People Percentage
1 Cipocok Jaya 8 31,02 11,13% 59.829 11,84% 1.928,72
2 Curug 10 44,91 16,12% 43.911 8,69% 977,76
3 Kasemen 11 66,52 23,88% 81.695 16,16% 1.228,13
4 Serang 12 27,44 9,85% 181.114 35,83% 6.600,36
5 Taktakan 12 58 20,82% 70.955 14,04% 1.223,36
6 Walantaka 16 50,12 17,99% 66.777 13,21% 1.332,34
Total 69 278,6 100,00% 505.510 100,00% 1.814,47
Source: AMPL Strategic Plan of Serang City Year 2007
In 2006, the extent of slums area in Serang regency reached 47.393 ha slums and it has tended to grow each year, in line with the growth of the population. In addition, the growth of slum areas has also been induced by the limited capability and responsibility of the communities in improving their settlement condition.
Figure 3.3. Percentage of Infrastructure Access in Serang City Year 2006
37 Table 3.2. Population in Kasemen District Year 2008
No Sub-district Wide of Area Population Density
(people/km2) Km2 Percentage People Percentage
1 Kasemen 8,48 12,75% 10.957 13,41% 1292,1
2 Warungjaud 3,83 5,76% 7.625 9,33% 1990,86
3 Mesjipriyayi 3,81 5,73% 7.510 9,19% 1971,13
4 Bendung 5,43 8,16% 6.689 8,19% 1231,86
5 Terumbu 7,48 11,24% 7.904 9,68% 1056,68
6 Sawahluhur 15,28 22,97% 9.864 12,07% 645,55
7 Kilasah 4,04 6,07% 8.424 10,31% 2085,15
8 Margaluyu 5,31 7,98% 5.809 7,11% 1093,97
9 Kasunyatan 5,8 8,72% 6.673 8,17% 1150,52
10 Banten 7,06 10,61% 10.240 12,53% 1450,42
Total 66,52 100,00% 81.695 100,00% 1228,13
Source: Kasemen District in Figure Year 2009
Kasemen District is one of 6 districts located at Serang City. Its area is about 66,52 km2 wide, which is divided into 11 sub-districts. Sawahluhur sub-district is the widest sub-district in Kasemen District, and its area is about 15,28 km2. On the other hand, Mesjidpriyayi sub-district is the smallest sub-district in Kasemen District, and its area is about 3,81 km2. In the mid of 2007, the number of inhabitants in Kasemen District is 81.695 people (about 18.329 households) with an average density is 1228,13 people/km2. The population is not distributed equally in each sub-district where the highest density is in Kasemen Sub-district (13,41%), and followed by Banten Sub-district (12,53%) and Sawahluhur Sub-district (12,07%). In Kasemen District, NUSSP was implemented on 2008 at three sub-district, which are Kasemen Sub-district, Sawahluhur Sub-district, and Banten Sub-district.
(4) Group Analysis
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facility, transportation infrastructure, latest education level of households, religion, slums condition, and clean water and sanitation access. These aspects are chosen because it has a close relationship with community participation in the implementation of NUSSP.
Table 3.3. Poor People in Kasemen District Year 2008
No Sub-district Inhabitant Household
Male Female Total Poor Very Poor Other Total
1 Kasemen 5.631 5.326 10.957 621 772 1.278 2.671
2 Sawahluhur 5.117 4.747 9.864 705 135 1.480 2.320
3 Banten 5.208 5.032 10.240 906 1.152 372 2.430
Source: Kasemen District in Figure Year 2009 and Aid Giving Agreement of Rural PNPM Project
39 Table 3.4. Education Facility in Kasemen District Year 2008
No Sub-district Kindergarten Elementary School
Source: Kasemen District in Figure Year 2009 and Aid Giving Agreement of Rural PNPM Project
Note: Madrasah and Pesantren are Islamic learning institution
40 Table 3.5. Road Condition in Kasemen District Year 2008
No Sub-district Area
Source: Aid Giving Agreement of Rural PNPM Project
Table 3.5 describes about transport infrastructure condition for each sub-district in Kasemen District. Kasemen Sub-district has longest road (10.700 m) than other sub-district, consist of 1300 meter city road and 9400 meter village road. Sawahluhur sub-district has shortest road, consist of 5000 meter city road and 600 meter village road. All of city road is in good condition, but village road condition is in various conditions. As the capital city of Kasemen District, Kasemen Sub-district has longest village road in good condition (5800 meter). The data of road in Kasemen District shows that the ratio of road length per people in Kasemen District is still very low compared to the national minimum service standard. The national minimum service standard is 600 meter per 1000 people for city road and 60 meter per hectare for village road (Minister Settlement and Regional Development Decree number 534/KPTS/M/2001). It also suggested that people mobility to move from one area to other area is still a crucial problem for Kasemen District. It potentially has an impact on the implementation of NUSSP.
Table 3.6. Education of Households in Kasemen District Year 2008
No Sub-district
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Table 3.6 describes the latest education level of households for sub-district in Kasemen District. Kasemen sub-district is inhabited by households which have graduated from Senior High School and Colleges/University more than other sub-district (7,5% and 29,4%). Sawahluhur sub-sub-district is inhabited by households who have graduated from Elementary School and Junior High School more than other sub-district (97,5%). Banten sub-district is inhabited by households who have graduated from (or have been ever studied in) Elementary School more than other sub-district (19,9%). The data of education level of households in Kasemen District suggested that citizens’ consciousness on the implementation of NUSSP, especially in Banten Sub-district, might be limited and has to be ensured by local government and facilitator in order to promote their participation on NUSSP.
Table 3.7. Slums Area in Kasemen District Year 2008
No. Location Slums Area
(ha)
Inhabitants
Poor People Poor Households
1 Kasemen Sub-district 14,4 2153 254
2 Sawahluhur Sub-district 12,9 2401 184
3 Banten Sub-district 9,5 3.565 557
Source: Neighborhood Upgrading Plan Database: Kasemen District Year 2008
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on community empowerment, it is expected that slums area can be reduced and the quality of settlement can be improved in sustainability way.
Table 3.8. Water Supply and Sanitation Access in Kasemen District Year 2007
No Sub-District Households
Household having access to Clean
Water facility
Households having access to Sanitation
facility
1 Kasemen 2.671 405 1.559
2 Sawahluhur 2.320 370 368
3 Banten 2.430 525 1.575
Source: AMPL Strategic Plan of Serang City 2007
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CHAPTER 4
ANALYSIS OF COMMUNITY PARTICIPATION IN THE IMPLEMENTATION OF NEIGHBORHOOD UPGRADING SHELTER SECTOR PROJECT
As mentioned in chapter one, this research sets up the hypothesis about the influence of community participation at preparation and planning stage on community contribution. Green and Haines (2002) have suggested that community development process is a linear process that begins with a community organization building which moves on to visioning, planning, and finally implementation and evaluation.
Our inquiry is to see if community contribution in the implementation of community action plan can be increased by increasing community participation at project preparation and planning stage. In participatory development project, community should be encouraged to involve itself at the preparation stage, which is project socialization, community organization formation, problem reflection and site survey to identify settlement environment problem, community needs, and local resources. Community should also be involved at the planning stage, which are examining, prioritizing, and selecting suitable community needs into community action plan.
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development project were gathered from Ministry of Public Works, Serang City Local Government, and consultant who were involved in this project. Information was also gathered by interviewing local actors, such as Local Coordinating Office, City Coordinator, Facilitator Team, CBO Coordinator, Community Self-help Group Coordinator, and residents.
The relationship between community participation at preparation and planning stage and community contribution was analyzed in macro and micro level. At macro framework level, it was examined by comparing the framework of NUSSP implementation approach and the framework of other participatory development projects which are implemented in Kasemen District. These participatory development projects are Rural PNPM Project and Urban PNPM Project. At the micro level, the relationship between community participation at preparation and planning stage and community contribution was examined by analyzing 3 sub-districts within NUSSP implementation located in Kasemen district, which are Kasemen sub-district, Sawahluhur sub-district, and Banten sub-district.
(1) The Community Participation in the Implementation of Participatory Development Project
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approach and location. NUSSP, Rural PNPM Project, and Urban PNPM Project have been implemented as an effort of Indonesia Government to improve the quality of life of poor people. It is implemented, not only by constructing and improving basic infrastructure and facilities, but also by empowering local community based on their own capacity and resources. NUSSP, Rural PNPM Project, and Urban PNPM Project have been also implemented in a similar location, which is Kasemen district in Serang City.
In detail, these participatory development projects, however, have a difference in the details of their approach in encouraging community participation. By comparing those differences in participatory development projects, especially the differing point where these three projects put emphasize on community participation in the project cycle, the typology of participatory development was made and also its implication on the achievement of community contribution.
• General Framework of Project
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of their environment, but also to achieve participatory development concept, which place emphasis on community self-reliance.
NUSSP, Rural PNPM Project, and Urban PNPM Project, thus, were implemented in Indonesia based on community participation. The purpose of NUSSP is to create local government and communities which have the capacity and ability in developing healthy, productive, livable, and sustainable housing and settlement. This purpose is slightly different from other projects. The purpose of Rural PNPM Project is to increase prosperity and job opportunities for low-income family in rural areas. It will be achieved by encouraging community independency in making a decision and managing development. For Urban PNPM Project, its purpose is to develop community and local government independency in overcoming poverty problem in a sustainable way.
Target location of these projects is as follows. NUSSP is implemented in urban slums area, while Rural PNPM Project is in a rural area, and Urban PNPM Project in poor urban area. Although there is a difference in target location, these projects have similar stakeholder, which are poor households (including local community organization) and local government. For Urban PNPM Project, in addition to these, stakeholder also involved university, NGO, and mass media.
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district level. It is different from other projects, since NUSSP and Urban PNPM Project fund is allocated for sub-district level. It suggests that community has more direct influence on the project fund allocation in NUSSP and Urban PNPM Project implementation while it was less possible for Rural PNPM Project.
Urban PNPM Project is designed to be implemented in multiyear time frame. Local community prepares sub-district medium term development plan based on community needs. Then, it is translated into sub-district annual development plan. It is different from other projects, which were implemented only for a single year. Multi year time frame of project provides more space for community to identify and prioritize community needs. Community also have longer time to understands their situation and organize project implementation.
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participate in each project component. Community can actively participate not only in infrastructure and facilities construction, but also social activity and small economic activity.
Different decision making level, time frame, and development component can be viewed as the main issue on participatory development project in Kasemen district. According to Act no 25 Year 2004 on National Development Planning System, planning is defined as a process for determining appropriate future action through a sequence of choice by looking at existing resources. For community level, decision making process provide a chance for the community to participate in identifying and ensuring the better condition of the future.
Lower level of decision making process, longer time frame, and more comprehensive development component provide broader choices for the community to solve their problem. Decision making process of Rural PNPM in preparing community action plan is different from other projects. In Rural PNPM Project, community action plan cannot be decided at sub-district level but must be decided at district level. For NUSSP and Urban PNPM Project, community action plan is prepared, prioritized, and selected by the community themselves at sub-district level. It suggests that the chance of the community to participate in NUSSP and Urban PNPM Project is higher than Rural PNPM Project.
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PNPM Project is also implemented for a single year. Medium-term development plan for five years, in Urban PNPM Project, has provided broader choice for the community to participate in identifying; not only problem, but also resources and alternative solution to ensure that community problem can be solved by community.
50 Table 4.1. Framework of Participatory Development Project
No Variable Project Implication to Community Participation
NUSSP Rural PNPM Project Urban PNPM Project
1 Executing Agency
Ministry of Public Works (DG of Human Settlement)
Ministry of Home Affairs (DG of Village and Community Empowerment)
Ministry of Public Works (DG of Human Settlement)
2 Purpose Creating local government and community who have capacity and ability in developing healthy, productive, livable, and
sustainable housing and settlement
Increasing prosperity and job opportunities for low income family in rural areas by encouraging community
independency in decision making and management development
Developing community and local government independency in overcoming poverty problem in sustainable way
• NUSSP is purposed to settlement sector, while other project purposes to increase prosperity and overcome poverty problem
• Rural PNPM Project and Urban PNPM Project have broader project purpose.
• NUSSP has lowest chance for community to participate on project implementation
3 Target
Location • Cities who have commitment to reduce poverty, develop settlement institution
and implement participatory process, and allocate matching grant (APBD)
• Propose community needs
• Districts in rural area that have underdeveloped sub-district and poor people
• District has kelurahan more than desa, and district has become the capital city of Kabupaten
• Districts having more than 10% of poor households
• Sub-districts having more than 20% of poor households
• Rural PNPM Project is addressed for rural poor people, while NUSSP and Urban PNPM Project for urban poor people.
Group • Low income households
• Local government
• Poor Households in rural areas,
• Community institutions in rural areas,
• Local government institutions
• Residents and Community Self-reliance
• Local government officer
• Related stakeholder
4 Project Fund Allocation
• Sub-district • District • Sub-district • Project fund for Rural PNPM Project is
allocated for district level.
• In NUSSP and Urban PNPM Project,
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community decide the usage of project fund at sub-district level
• Rural PNPM Project has lowest chance for community to participate on project implementation
5 Fund Sources
• National Annual Budget (ADB Loan)
• National Annual Budget (WB Loan)
• Local Annual Budget
• Community
Participatory development project should be supported not only by government fund, but also community contribution to create equal partnership between government and local
community
6 Time Frame • Single year • Designed as multiyear, but in practice it used single year
• Multi year • In Urban PNPM Project, community prepare Sub-district Medium-term development plan for 5 years
• Urban PNPM Project has highest chance for community to participate on project implementation
7 Project
Component • Settlement infrastructure construction and improvement
• (local roads, sanitation, drainage, clean water, pathway, sewerage)
• Basic infrastructure /facilities development and
improvement
• Health and education services improvement activities
• Capacity and skills building of economic business groups
• Saving and loan for capital increase of woman group activity
• Infrastructure and facilities construction
• Revolving fund to improve settlement quality
• Increased capital of
Productive business activity
• Community training
• Health and education
• NUSSP fund is only used for infrastructure development. Rural PNPM Project and Urban PNPM Project fund can also be used for economic and social development component
• NUSSP has lowest chance for community to participate on project implementation
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• Project Implementation at Community Level
According to manual of participatory development project, project implementation can be divided into two levels, which are project implementation at local government level and community level. For community level, project implementation can be divided into several stages, which are preparation, planning, implementation, and evaluation stage.
Related to community development process suggested by Green and Haines, there are several stages on community development process, begin with organizing stage, visioning stage, planning stage, and implementation and evaluation stage. Organizing and visioning stage on community development process can be described as preparation stage on participatory development project implementation. Local community organization establishment process can be viewed as organizing stage on community development process, and site survey on NUSSP, extracting ideas on Rural PNPM Project, and self mapping on Urban PNPM Project can be viewed as visioning stage. In this stage, community try to understand their problem and also their potential, so that community recognize their vision to solve these problems with the existing their potential.
Preparation Stage
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Rural PNPM Project is started from socialization at district and sub-district level, followed by the management team formation at sub-district level, training and the last activity is extracting ideas. For Urban PNPM Project, preparation stage is started from project socialization at district and sub-district level, community meeting to ensure community readiness, and followed by poverty reflection.
In NUSSP and Rural PNPM Project, project socialization and community reflection were managed by a government official (district and sub-district) and consultant (facilitator team). After community reflection, CBO was prepared and formed by community. Community self-help group is also formed to conduct site survey in order to identify community problem and community needs. In Rural PNPM Project, community organization was formed by community after project socialization. Government official and consultant team’s roles are just for preparing community through project socialization. After forming community organization, community through community organization held community reflection and community needs identification. In Urban PNPM Project, almost all preparation activity was prepared by a government official and consultant team. Project socialization, problem reflection, and self-help mapping were assisted by a government official and consultant team. After identifying community needs in self-help mapping, community established community organization to prepare community action plan.
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different from others, visioning stage of Urban PNPM Project was conducted before organizing stage. It suggests that community participation on visioning stage of Urban PNPM Project implementation is lower than other projects. From the ladder of participation view, organizing stage of these participatory development projects can be classified as a partnership. Community and local government agreed that the responsibilities of project implementation will be shared. However, other factors have influenced to community participation in organizing stages. Urban PNPM Project has the highest community participation on organizing stage because community awareness has been increased by visioning stages. NUSSP has lower community participation than Urban PNPM Project, because organizing stage was conducted after settlement problem reflection. Rural PNPM Project has the lowest community participation, because organizing stage was directly conducted as the first step on community development process.
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Planning Stage
In the planning stage, community has conducted several activities, from collecting community needs, prioritizing community needs, and then selecting this community needs to be funded and constructed by community. In NUSSP, the result of site survey was used as input for Neighborhood Upgrading Plan. All community needs were prioritized and then selected by community based on some criteria, such as existing infrastructure condition and settlement environment problem. Neighborhood Upgrading Plan was selected and agreed in the community meeting, and the result of Neighborhood Upgrading Plan must be socialized to community. In Rural PNPM Project, the result of extracting ideas in the preparation stage was used as input for preparing sub-district medium-term development plan (for 5 years). Sub-district medium-term development plan was translated into annual development plan, to be proposed and verified at district level. Community in sub-district level cannot select the community needs by themselves, but it must be proposed and selected in district meeting level, together with other sub-district development plan. After selection in district level, selected proposal was informed to community level in sub-district level. In Urban PNPM Project, the result of self-help mapping was used as input for preparing sub-district medium-term development plan and then annual development plan. Sub-district medium-term development plan and annual development plan were prepared, prioritized, and selected by the community themselves through community organization.
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development plan (5 years development plan) and annual development plan (infrastructure development activity, economic activity, and social activity) were prioritized and selected by community. NUSSP has a lower chance for the community to involve in planning community needs. Community Neighborhood Plan was prepared only for a single year and it means that community prepared non sustainable development plan. On the other hand, community participation in Rural PNPM Project is lower than other projects. Sub-district medium-term development plan and annual development plan decided by community in sub-district level must be proposed, verified, and then selected in district level. It should be competed together with other annual development plan proposed by other sub-district.
