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3 FINAL EVALUATION REPORT OF CARE INTERNATIONAL INDONESIA S WATER AND SANITATION FOR A HEALTHIER ENVIRONMENTAL SE11~ING (WASHES) PROJECT LID~ARY.tNTERNATJONAL REFEREN~CE CENT~ Fi~ ~C~O~MLNIT ~ Wi\1E~SUPPLY AN ),~ T ~C) ~o ::;~c~j9 AD The H~gu~ r~.~c;l ext. 141/142 RN:V~V\ C\Lj3L~ 82~2~1D~it Submitted By: Submitted To: Rick McGown, Assocites in Rurl Development, Inc. Rhrdjo Soewndi, Consultnt Judi Aubel, Consultnt CARE Interntionl Indonesi, nd The U.S. Agency for Interntionl Development Jkrt, Indonesi Dte: 23 December 1991

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5 TABLE OF CONTENTS Pge Acronyms nd Abbrevitions Prefce Executive Summry i iv V Prt One - Bckground of the Project 1 Prt Two - Description of Evlution Purpose Terms of Reference Core Evlution Tem Evlution Methodology 4 Prt Three - Findings Community Prticiption nd Mngement Communities Socio-culturl Profiles Community Wter Orgniztions Women s Involvement in WS&S Projects Engineering Design nd Construction Design Stndrds Community-Assisted Construction Technology Selection Technicl Trining Opertion nd Mintennce The WASHES O&M Approch Site Observtions Improving O&M Progrms Finncil Mngement Snittion nd Hygiene Eduction (SHE) Hygiene nd Snittion Accomplishments Hygiene nd Snittion Prctices Community Development Vs. Informtion-Trnsfer Approch Roles of Community Wter Committees Community-Level Trget Groups }-Iygiene Eduction Messges, Mterils, nd Activities Technicl nd Mngeril Support for SHE Component FO Attitudes, Knowledge, nd Skills 32

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7 3.5 Institutionl Linkges nd Policy Impcts Coordintion with Government Counterprts Coordintion with Other Mjor Groups nd PVOs/NGOs Progress Towrd Project Gols nd Activity Trgets Intermedite Gols for WASHES-I Intermedite Gols for WASHES-lI Project Mngement nd Implementtion Project Mngement Structure Dy-to-Dy Opertions Plnning nd Monitoring Project Opertions Humn Resources Development nd Trining Project Stffing Site Selection 52 Prt Four - Recommendtions nd Lessons Lerned Recommendtions Community Prticiption nd Mngement Engineering Design, Construction, nd O&M Snittion nd Hygiene Eduction Project Mngement, Implementtion, nd Trining Lessons Lerned 61 Appendices Appendix One - Sites Visited During the Evlution Appendix Two - Suggested Further Studies Appendix Three - Appendix Four - Evlution Tem Activities nd Itinerry Suggested Reference List for CARE Field Office Librries Appendix Five - Suggestions for Incresing Women s Involvement in WS&S Activities t the Community Level

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9 ACR ADB AIDAB APC ARD BANGDA BANGDES BAPPEDA BAPPENAS BPAB BPAM Bupti CAWS CD CIDA CII CIIHQ Cipt Kry CP/M CR CSF CSFW CSFW/MST DCD Des Din Des Dusun EJ FO GFPS CI GOT HDP HIPPAM IG IKK IPvO KAP Kbupten ACRONYMS AND DEFINITIONS Assistnt Chief Representtive (in CARE Field Office) Asin Development Bnk Austrlin Interntionl Development Assistnce Bureu Assistnt Project Coordintor (bsed in CIIHQ) Assocites in Rurl Development, Inc. Directorte Generl for Regionl Development Directorte Generl for Villge Development Regionl Development Plnning Bord Ntionl Development Plnning Bord Wter Mngement Committee (post-construction) Interim Regionl Wter Enterprise Hed of Kbupten CARE-Assisted Wter Sites (Survey) Country Director (CARE) Cndin Interntionl Development Agency CARE Interntionl Indonesi CARE/Interntionl Indonesi Hedqurters (Jkrt) Directorte Generl of Humn Settlements, MPW Community prticiption nd mngement Chief Representtive (in CARE Field Office) Community self-finncing (pproch) Community Self-finncing of Wter nd Snittion Systems Project (CARE/USA nd USAID/Indonesi) CSFW Mngement nd Support Tem (in CIIHQ) Deputy Country Director Villge (1st locl government level below Kecmtn) An Indonesin PVO operting in Yogykrt 1-lmlet (villges re often composed of severl) Est Jv Field Officer Grvity-flow, piped (wter) system Glvnized iron pipe Government of Indonesi 1-ugh density po]yethelene Villge wter mngement committee (insted of PSAB/BPSAB terminology used in EJ nd NTB)) Intermedite Gol Literlly, cpitl of district, but in most cses refers to subdistrict town wter supply system Iiid igenous privte voluntry orgniztion Knowledge, ttitudes nd prctices District 1

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11 Kepl Des Kecmtn KUD LKMD LMD LPCD LP2SD Lurh MC MCK MOH MOHA MPW MST NEED NGO NTh O&~M OJT PAT PC PDAM PIE PIR PKK PM P0 Posyndu PPSAB Puskesms PVC PVO PW QARQ Repelit V RWS RWSG RWSS SHE SRCD TA Villge Chief Subdistrict Villge coopertive orgniztion Villge Development Committee (BANGDES-coordinted) Villge Legisltive Forum Liters per cpit per dy (wter demnd) An Indonesin PVO operting in Lombok Elected villge leder (sme s Kepl Des) Mndi (bthing) nd Cuci (wshing), wter distribution point, with tps, wshing re, nd usully storge Mndi/cuci/kkus, wter distribution point, with tps, bthing nd wshing res, storge, nd wter seled ltrines Ministry of Helth Ministry of Home Affirs Ministry of Public Works Mngement nd Support Tem (bsed in CIIHQ) NC) Excuse for Esy Dess (site selection process) Nongovernmentl Orgniztion Nus Tenggr Brt (West) Province Opertion nd Mintennce On-the-job trining Project Activity Trget Project Coordintor (bsed in CIIHQ) Regionl Wter Enterprise Project Implementtion nd Evlution (Report) Project Implementtion Report (renmed PIE) Fmily Welfre (Women s) Orgniztion (multi-leveled) Project Mnger Project Officer Community-mnged helth post (typiclly there re severl in ech villge) Villge wter development committee (construction phse) Subdistrict Helth Center Polyvinyl chloride pipe Privte voluntry orgniztion Common reference to MPW (Cipt Kry) (wter) quntity, ccessibility, relibility, nd qulity Fifth Five Yer Development Pln (1989/ /94) Rurl Wter Supply Regionl Wter Supply Group (World Bnk) Rurl Wter Supply nd Snittion Snittion nd Hygiene Eduction Sulwesi Rurl Community Development Project (CII) Technicl ssistnce 11

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13 TOMA TOT TPM UNDP UNICEF USAID VLOM WASH WASHES WID WJ WS&S Community leders (both forml nd informl) Trining of Triners Tem Plnning Meeting (from the WASH Project Model) United Ntions Development Progrmme United Ntions Children s Fund U.S. Agency for Interntionl Development Villge-level opertion nd mintennce Wter nd Snittion for Helth Project (USAID) Wter nd Snittion for Helthier Environmentl Setting (funded by CARE/USA & USAID) Women in development West Jv Wter Supply nd Snittion 111

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15 PREFACE This report is the finl evlution of CARE/Interntionl Indonesi (CII) s Wter nd Snittion for Helthier Environmentl Setting Project (WASHES), designed to increse the ccess of rurl communities to sfe, relible, nd dequte wter supply nd improved snittion fcilities in the three provinces of West Jv (WJ), Est Jv (EJ), nd West Nus Tenggr (NTB) in Indonesi. An evlution of the predecessor to WASHES, CARE s Rurl Community Wter Supply (RCWS) Project, ws conducted in An ssessment of WASHES community prticiption, hygiene nd helth eduction strtegies ws crried out in WASHES ws jointly funded by U.S. Agency for Interntionl Development (USAID) Grnt No nd by CARE-USA unrestricted funds. The core evlution tem included Rick McGown, Senior Engineer of Assocites in Rurl Development, Inc. (ARD) (Tem Leder nd Technicl Specilist), Consultnt Rhrdjo Soewndi (Community Prticiption nd Mngement Specilist), nd Consultnt Judi Aubel (Hygiene nd Snittion Trining Specilist). The core tem ws supported by Government of Indonesi (GOl) nd CARE/Indonesi stff, including H. S. Nsution of the Government of Indonesi (GOI) s Ministry of Home Affirs, CARE Project Coordintor (PC) Dn O Brien, Assistnt Project Coordintor (APC) for Hygiene nd Snittion Ctherin Hryono, Evlution Officer Glenn Gibney, nd Assistnt Evlution Officer Mnn Tobing. The tem ws ssisted during its field visits by Djoko Wrtono (Ministry of Helth), nd four representtives from the Ministry of Public Works, Ir. A. S. Kriy, Jr. H. Tjhjono, Jr. B. J. Nugrh, nd Jr. Sudrdjt. The tem plnning meeting (TPM) took plce in lte September, nd field visits during the first three weeks of October. The evlution tem spent one week in Jkrt briefing wter project stff from CII hedqurters (CIIHQ), GOI, nd USAID stff, nd finlizing this report. The evlution tem would like to thnk CARE s Field Office stff in Bndung, Pcitn, Mtrm, nd Bim for providing us with the informtion nd logisticl support criticl to the success of this evlution. We would lso like to thnk provincil GOT officils for their ssistnce nd hospitlity, nd the people of rurl Indonesi whom we met during our site visits, mny of whom were direct beneficiries of CARE s W$&S development efforts. We hope this report will be of use to CARE nd other NGOs, government gencies, nd donor groups working to provide sfe, relible WS&S services in rurl Indonesi. Evlution of the Technicl nd community Prticiption Approch of C ARE-Assisted Rurl Wter Supply Projects in Indonesi, Robert Gerhert nd Subirto Mrtono, WASH Field Report No. 107, the Wter nd Snittion for Helth (WASH) Project, Februry CARE/Indonesi: Incresing Community Prticiption nd Developing Bsic Strtegy for Hygiene Eduction in Rurl Wter nd Snittion Progrms, My Ycoob, Dn O Brien, nd Rick Henning, WASH Field Report No. 284, the Wter nd Snittion for Helth (WASH) Project, December iv

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17 EXECUTIVE SUMMARY Purpose of the Evlution This is the finl evlution of the Wter nd Snittion f~rhelthier Environmentl Settings (WASHES) Project, implemented by CARE/Interntionl Indonesi (CII), nd jointly funded by USAID nd CARE Interntionl. Project Bckground nd Summry CARE/Indonesi hs been working in the wter resources development sector in Indonesi for 14 yers. During tht time, CARE implemented series of wter development projects beginning with the Rurl Community Wter Supply (RCWS) Project, which evolved into the Wter nd Snittion for Helthier Environmentl Settings (WASHES-I) Project in 1985, the WASHES-Il Project from 1988 to 1991, nd finlly, the Community Self-Finncing of Wter nd Snittion Systems (CSFW) Project, operting in the three provinces of West Jv (WJ), Est Jv (EJ), nd Nus Tenggr Brt (NTB). The Sulwesi Rurl Community Development (SRCD) Project, begun in 1978, is the lrgest of CARE s wter supply nd snittion (WS&S) development efforts. WASHES-Il ws completed in September This evlution covers both WASHES-I nd WASHES-Il, which hd different overll nd intermedite gols. The WASHES-I overll gol ws to significntly reduce the incidence of wter-borne diseses in CARE-ssisted communities. Intermedite gols were strightforwrd: to provide dequte nd relible WS~Sfcilities which re used regulrly, nd develop mechnisms for sustinble opertion nd mintennce (O&M) of those fcilities. The finl gol of WASHES-IL ws to ccelerte ccess to relible nd dequte doniestic wter supply nd snittion fcilities for rurl villgers in Indonesi. Its intermedite gols were more diverse: to improve community orgniztion nd mngement before nd during construction; mximize community inputs; encourge communities use of credit to py for systems, coupled with bnks willingness to provide tht credit; nd develop mechnisms for sustinble opertion nd mintennce of the fcilities. CARE s pproch to community-bsed wter supply nd snittion development hs stedily evolved over the yers. In RCWS, the focus ws lrgely on community orgniztion for the purpose of constructing nd mintining WS&S systems. CARE provided technicl ssistnce in community orgniztion for developing wter committee, technicl trining for construction, nd construction supervision. Community inputs minly comprised locl mterils nd unskilled lbor. The miniml ttention given to post-construction system mngement ws primrily in the form of informl ssistnce rther thn community trining. WASHES-I expnded tht focus somewht by encourging broder rnge of community inputs, including csh contributions nd collection of user fees for O&M. CARE then begn to provide some trining in V

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19 finncil mngement nd preventive mintennce. In WASHES-LI, community trining ws further extended to support greter community mngement (not simply prticiption) of the WS&S development process, broder prticiption in system design, resource mobiliztion, some modicum of snittion nd hygiene eduction, nd more focused finncil mngement. By this time, up to 50 percent of on-site system development costs were required from CARE-ssisted communities. The most unique spects of WASHES (nd its successor project CSFW, evluted in June 1991~)which sets it prt from the myrid of other WS&S ctivities in rurl Indonesi re the degree to which CARE-ssisted communities both prticipte in nd re encourged to directly mnge project ctivities, coupled with the level of community contributions both for initil system costs s well s the long-term recurrent costs of opertion, mintennce, nd repir. Direct CARE contributions by the end of WASHES-IL included technicl ssistnce, 50 percent of system on-site costs, nd logisticl support. Mjor Findings nd Recommendtions Mjor findings, recommendtions, conclusions, nd lessons lerned cn be ctegorized into the four res of: community prticiption nd mngement; engineering design, construction, nd O&M; snittion nd helth nd hygiene eduction; nd project mngement nd implementtion. Multi-level community wter mngement orgniztions re the bsis for CARE s community prticiption/mngement pproch. At the highest level re the community wter committees (clled either BPAB or HIPPAM depending on the province), typiclly consisting of 5 to 10 people who mnge the entire system. Depending on the size of the system, there my be other levels of committees bsed round either prticulr wter points (Kelompok) or lrge or smll neighborhoods in the community. Community contributions of csh, lbor, nd locl mterils to construct, operte, nd mintin the systems re collected through this orgniztionl structure in wide vriety of wys, nerly lwys involving some degree of contribution from ech beneficiry fmily in the community. Community motivtion to prticipte in these projects is function of wter scrcity, ccessibility, nd, to much lesser extent, wter qulity. ~ Rurl Wter Supply nd Snittion in Indonesi - Midterm Evlution Report of CARE/Interntionl Indonesi s Community Self-Finncing for Wter Supply nd Snittion Systems Project, Rick McGown, Dwm Rhrdjo, nd Nick Ritchie, CARE, Jkrt, June vi

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21 CARE encourges ctive community prticiption throughout the vrious stges of ssistnce to beneficiry community. First, CARE Field Officers initilly pproch potentil site nd explin the project pproch. Initil surveys re tken to determine the level of need for WS&S ssistnce, the bility of the community to mke substntive contributions to support their system, nd to ssess whether the physicl ttributes of the site re pproprite for the vrious technology options which CARE typiclly provides. Wter systems built under WASHES were most commonly grvity-flow, piped wter systems, with some rinwter ctchment tnks, hndpumps, nd, to much lesser extent, hydrulic rms. Snittion systems instlled by WASHES were minly wter-seled pit ltrines (some with septic tnks nd lech fields) for public use nd ventilted pit ltrines for privte use. Once it is determined tht site fits the bsic site selection criteri, CARE initites community trining in orgniztion nd mngement, resource mobiliztion, system design, construction, opertion nd mintennce, finncil mngement, nd snittion nd hygiene eduction. There were significnt differences between the three provinces where CARE worked in socil customs nd orgniztion, culturl trditions, nd economic conditions, ll of which influenced the implementtion of project ctivities in different wys. In generl, the community mngement/prticiption pproch developed by CARE in WASHES (nd continuing to evolve in the CSFW Project) is sound pproch to WS&S development. Involving beneficiries to much greter extent in ll mjor decisions involving their systems helps ensure their continuing support over the long term. There were mny communities where the project ws clerly success. There were others where it ws not. Aprt from physicl incidents such s lndslides, floods, or chnges in wter resources, the most importnt indictor of the long-term success of the project in given community ws the strength nd qulity of the existing ledership. Strong, competent ledership brought out the best in communities. Incompetent or simply wek ledership prevented communities from tking full dvntge of CARE s technicl ssistnce. The wter supply nd snittion systems built with CARE ssistnce were welldesigned nd usully well-built. Snittion fcilities were not s widely supported by communities s were wter supplies. Dringe ws noted wekness, lrgely becuse communities were not sufficiently wre of the direct linkge between proper snittion prctices nd community helth. Opertion nd mintennce prctices vried considerbly from one community to the next, s did the qulity of system finncil mngement. The mjority of CARE-ssisted communities mnged to successfully operte nd mintin their systems (some for up to 10 yers). A minority hd difficulties either for physicl resons (force mjeure) or, more often, due to n inbility to convince their fellow villgers of the importnce of providing continuing finncil nd orgniztionl support for their systems. Strtegies to del with such situtions should include improved community trining in opertion nd mintennce, finncil mngement, nd community orgniztion. More creful site selection, tking into ccount n ssessment not only of community s physicl, socil, nd finncil vii

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23 conditions, but lso the qulity of its existing ledership, my help to further improve CARE s lredy envible success rte in WS&S development. While the focus of the WASHES project ws on instlling WS&S fcilities, much less ttention ws given to hygiene eduction nd improvements in snittion nd relted environmentl problems. Generl community wreness of WS&S-relted helth problems remins reltively low. If future WS&S projects hope to contribute to significnt improvements in community helth, crefully designed snittion nd hygiene eduction (SHE) strtegy must be implemented throughout the period of CARE involvement in beneficiry communities, not just s n dd-on fter construction is completed. The community development pproch (in contrst to incresing wreness by simply providing informtion) used by CARE for constructing WS&S systems is solid foundtion upon which to build hygiene eduction strtegy. This pproch consists of: working through community institutions nd leders; developing community responsibility for the plnning nd mngement of wter systems; nd using problemsolving pproch which strengthens the community s bility to nlyze nd solve problems. Future hygiene eduction efforts should use community development pproch to promote sustinble chnges in community WS&S norms, nd encourging ctive community responsibility for solving problems such s dringe, WS&S fcility use, nd needed mintennce. Given the centrl role which trining plys in this strtegy, it will be necessry to reinforce the trining skills nd/or hire dditionl trining stff to ssure ongoing trining needs identifiction, nd design nd fcilittion of FO trining. Active support from Field Office mngement stff for hygiene nd snittion nd for incresing the involvement of women in CARE s WS&S projects will be required if they re to be effectively integrted into future progrm strtegies. As much s possible, FOs should collborte with GOT counterprts (prticulrly the Puskesms snitrins) in developing nd crrying out SHE ctivities t the community level. CARE should continue to increse its efforts in coordinting its ctivities with other mjor plyers in the WS&S development sector (e.g., World Bnk, UNDP, AIDAB, UNICEF, GTZ, Indonesin nd interntionl NGOs) by joint review of project plnning documents, periodic interest group meetings, nd sponsoring conference on WS&S development (for both rurl nd pen-urbn res) in Indonesi. viii

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25 PART ONE - BACKGROUND OF THE PROJECT CAR 4lntenntionl Indonesi hs been ctively involved in the Wter Supply nd Snittion (WS&S) sector since bout The Rurl Community Wter Supply (RCWS) Project preceded the two phses of the Wter nd Snittion for Helthier Environmentl Setting (WASHES-I nd II) Project. The CARE/CIDA-funded Sulwesi Rurl Community Development (SRCD) Project lso hs substntil WS&S component. SRCD, which currently instlls n verge of 38 grvity-fed piped wter systems nnully, begn in WASHES ctivities concentrted on the design nd construction of WS&S systems in rurl nd, to some extent, pen-urbn settings. WASHES uses community-oriented pproch to WS&S development, with strong community trining component to develop indigenous skills in community mngement, system design, nd construction, with secondry emphsis on opertion nd mintennce (O&M), finncil self-mngement, nd snittion nd hygiene eduction. By the end of WASHES-Il, CARE hd set trget contributions (csh nd in-kind) for communities t 50 percent of totl instlled cost (not including the cost of CARE s technicl ssistnce). The successor project to WASHES, the Community Self-Finnced Wter Supply nd Snittion Systems (CSFW) Project, tkes these concepts further by iming t 100 percent community self-finncing of systems, coupled with vrious credit schemes (including collterlized bnk lons) to provide up-front finncing of community systems. The CSFW Project begn in July 1988, nd continues through WASHES-I ws implemented from 1985 to WASHES-lI begn in 1988, nd ws completed in September WASHES ctivities were bsed in the three provinces of West Jv (through CARE s Bndung office), Est Jv (in Pcitn), nd Nus Tenggr Brt (NTB, in both Lombok nd Sumbw). WASHES constructed n verge of 25 grvity-fed piped wter supplies (GFPS) every yer, with secondry efforts devoted to working with communities to build rinwter ctchment tnks (in Pcitn), instll hndpumps on drilled boreholes, nd instll smll number (nine) of hydrulic rm pumps in ll three provinces. WASHES lso ssists communities in building vrious kinds of snittion fcilities, including community wter tps with bthing nd wshing fcilities (clled inndi/cuci, or MC) nd sometimes lso including public ltrines (then clled n MCK, for mndi/cuci/kkus, kkus being ltrine). CARE s community mngement-oriented development pproch, s initited during RCWS nd continued under WASHES-I nd WASHES II, ws motivted primrily by three circumstnces: the GOl, while hving committed itself to significnt development support for the rurl WS&S sector (ccording to the lst three Five Yer Plns, or Repelit) nd the interntionl donor community re simply unble to 1Food for Self-Sufficiency: community Self-Finncing nd Wter nd Snittion Systems, CARE/Indonesi, revised Mrch

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27 mrshl nd commit sufficient resources (personnel, finncil, nd mteril) to meet the urgent needs of rurl Indonesins for dequte, relible wter nd snittion fcilities of cceptble qulity to support bsic helth nd hygiene requirements; even if such resources were vilble to provide mssive development support, the trditionl pproch to developing rurl WS&S fcilities (centrlized, top-down, nd without dequte provision for opertion nd mintennce) hs been unsuccessful in terms of its long- (or even medium- ) term sustinbility; nd experience in mny countries round the world in rurl development in generl, nd rurl WS&S in prticulr, shows tht communities re much more likely to finncilly nd mngerilly support their wter systems over the long term if they hve significnt stke in them (i.e., when they hve mde significnt contributions to their plnning, design, construction, O&M, nd direct funding through both csh nd in-kind contributions). Trditionlly, government gencies took responsibility for developing rurl wter supplies. Both Cipt Kry (the deprtment within the Ministry of Public Works now responsible for rurl wter supply) nd the Ministry of Helth hve hd responsibility for vrious spects of rurl WS&S over the yers. However, incresingly pprent humn nd finncil resource constrints hve slowed the chievement of GOl development gols in this sector. Given these circumstnces, CARE felt tht the best wy to promote sustinbility in RWSS systems ws to develop n pproch whereby users would ssume greter (but not complete) responsibility for plnning, mnging, finncing, instlling, operting, mintining, nd repiring their own systems. The gol of WASHES-I ws to reduce the incidence of wter-borne diseses in CARE-ssisted communities. This ws modified under WASHES-Il to ccelerte ccess to relible nd dequte domestic wter supply nd snittion fcilities for rurl villgers in Indonesi. Prt of the reson for this modifiction ws CARE s commitment to process-oriented projects, nd the ever-incresing role of the beneficiry communities, prticulrly in system finncing. WASHES-Il intermedite gols were more diverse: improve community orgniztion/mngement before nd during construction; mximize community inputs to support project development; encourge communities use of credit to py for systems, coupled with bnks willingness to provide tht credit; nd develop mechnisms for sustinble O&M of the communities fcilities. 2

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29 PART TWO - DESCRIPTION OF EVALUATION 2.1 Purpose - - The finl evlution of the WASHES Project is requirement of USAID/Indonesi Grnt It ws conducted from September 23 to October 25, The purpose of the evlution ws to ssess the extent to which the project chieved its gols nd objectives, nd to formulte lessons lerned bout sustinbility of wter system design nd construction, provisions for opertion mintennce, snittion nd hygiene eduction, nd the role of community prticiption in developing nd sustining rurl wter systems. The lessons lerned will be used to improve the design nd implementtion of future CARE s RWSS development projects, prticulrly the ongoing CSFW Project. 2.2 Terms of Reference The Terms of Reference for the evlution were to ssess the following: the pproch to community prticiption used to mobilize communities for WS&S system construction nd mintennce; the sustinbility of the WS&S systems over the long run; the degree of community responsibility for 08cM of the WS&S systems; the trnsferbility of the project strtegy to other PVO/GOI institutions; the influence of the project on locl nd ntionl WS&S policy; the efforts to involve women in decision-mking roles; the effectiveness of the hygiene nd snittion component of the project; nd the effectiveness of the trining provided to nd by CARE stff. 2.3 Core EvlutiQn Tem The core evlution tem consisted of three people. Rick McGown, Tem Leder nd Technicl Specilist for rurl wter supply nd snittion systems, is Senior Engineer nd Senior Associte t Assocites in Rurl Development, Inc. (ARD). He hs worked on wter nd energy projects in Afric, the Middle Est, nd Asi for over nine yers. Judi Aubel, Hygiene nd Snittion Specilist on the tem, is n independent consultnt in helth nd hygiene eduction, nd helth trining. She hs worked for 12 yers in community helth nd mternl nd child helth progrms, primrily in Afric nd Ltin Americ. Rhrdjo Soewndi, Community Prticiption Specilist, is n Indonesin nthropologist nd independent consultnt who hs extensive experience with 3

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31 community development projects throughout the country. The core tem ws supported by numerous GO! officils nd CIIHQ nd Field Office stff in ech province. 2.4 Evlution Methodology The structure of the evlution followed the stndrdized evlution procedures s defined in the CARE Progrm Mnul. A representtive smple of WASHES sites in WJ, EJ, nd NTB (both in Lomb~knd Sumbw) were visited (see Appendix 1 for site list). The full evlution tem ws divided into three sub-tems. The Technicl Specilist led one sub-tem which focused on project mngement, engineering design nd construction, 0&M, nd finncil mngement. The Hygiene nd Eduction Specilist led nother sub-tem which ssessed the snittion nd hygiene eduction ctivities in the project. The third sub-tem, coordinted by the Community Prticiption Specilist, ssessed community prticiption nd mngement. The evlution methodology consisted of the following: four-dy plnning meeting, during which the core evlution tem met with CIIHQ WASI-IES/CSFW stff nd the Evlution Officer to discuss the Terms of Reference nd revise the site visit schedule. The plnning meeting followed the WASH model for Tem Plnning Meeting (TPM); review of relevnt project documenttion, including project proposls (WASHES I/I!), periodic reports, technicl mnuls, reports from other CII projects (CSFW nd SRCD), nd WASH reports on Indonesin WS&S projects; review of 001 wter sector development plns (i.e., Repelit V), nd specific studies relted to wter resources, snittion, nd hygiene in Indonesi; site visits in three provinces (WJ, EJ, nd NTB), interviews with field stff, provincil GO! officils, nd project beneficiries (wter committees, wter user groups, other community leders); nd meetings with personnel from donor gencies working in the WS&S sector (USA1D, UNICEF, World Bnk/UNDP) to discuss progrmmtic issues nd constrints relted to project plnning nd implementtion. 4

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33 PART THREE - FINDINGS The principl findings of the evlution tem re grouped here ccording to the mjor res of: community prticiption nd mngement; engineering design nd construction; opertion nd mintennce; snittion nd hygiene eduction; institutionl linkges nd policy impcts; progress towrd project gols nd objectives; nd project mngement nd implementtion. Additionl discussion is given to link these findings to the project s chievements nd constrints, s well s to suggest modifictions in the implementtion strtegy for the successor to WASHES, the Community Self-Finncing nd Wter nd Snittion Systems (CSFW) Project. 3.1 COMMUNITY PARTICIPATION AND MANAGEMENT Community prticiption2 nd mngement (CP/M) in CARE s WS&S projects is one of the centrl strtegies for helping ensure the sustinbility of improved WS&S systems. Community prticiption is precondition for the community mngement pproch tht CARE hs dopted for the CSFW project3. Active community prticiption in finncing, constructing, operting, mintining, nd repiring their own WS&S systems hs the direct benefit of mobilizing otherwise unvilble humn nd finncil resources to support these systems. This cn substntilly ssist the Government to llevite its stedily incresing burden of supporting ever-expnding WS&S systems throughout the country with limited resources Communities Socio-culturl Profiles CARE-ssisted communities in WJ, EJ, nd NTB hve some differences in their socioeconomic condition, socil orgniztion, nd propensity for collective ction. These differences help explin some of the community-held ttitudes which ffect constrints nd opportunities for WASHES project interventions. WASHES beneficiries in WJ re minly frmers producing commodities (e.g., vegetbles, coffee, fruits, pond-fish, nd rice) for the lrge mrkets in Bndung (the provincil cpitl) nd surrounding towns. Communities re strtified into lrge-scle frmers, trders, smll frmers, nd griculturl workers. Communities in WJ hve long hd forml orgniztionl structure nd hierrchicl ledership. However, the economic nd socil strtifiction hve tended to weken these communities sense of socil solidrity. Still, collective ction either through voluntry motivtion (~otong-royong)or forml instruction (kerj-bkti) is common in these communities. 2 ~ opertionl definition is: Community prticiption is n ctive process whereby beneficiries influence the direction nd execution of development projects rther thn merely receive shre of the project benefits. World Bnk Discussion Pper No. 8, J. Pul, Wshington, DC, ~ Community prticiption provides the environment required for successful community mngement. from WASH Technicl Report No

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35 In EJ, WASHES beneficiries re mostly smll frmers working on less fertile lnds, nd producing less importnt commodities such s coconut nd coconut sugr, nd cssv. Est Jvnese re fmilir with forml orgniztionl structure nd hierrchicl ledership. In EJ communities (especilly in Pcitn where CARE works), both socil solidrity nd collective ction re exceptionlly well-ingrined in peoples socil behvior. In NTB, WASHES beneficiries re minly frmers producing commodities such s rice, coffee, nd vegetbles for smll mrkets in just few towns. They rc socioeconomiclly strtified with strongly held trditionl beliefs. Nonetheless, their socil orgniztions, nd therefore their cpbility for collective ction nd socil solidrity, re reltively wek. For communities in NTB, voluntry group ctions (necessry for finncing nd building community wter supply) tend to be difficult to orgnize nd sustin. In WJ nd EJ, villge communities re used to self-orgnize community ction motivted by both the communities themselves (~otong-royong)or by the instruction of the super-villge ledership (kerj-bkti). Both forms of community ction hve been known since time immemoril. In generl, the less strtified the community the greter the likelihood of successful community mobiliztion. In Lombok (NTB), due to the strong trditionl ties, orgnized community ction tends to be more difficult Community Wter Orgniztions Community prticiption in CARE-ssisted projects is encourged by forming multi-level community wter orgniztions. The smllest unit consists of WS&S users round prticulr wter tnk (bk pennipung) or MC/K, group clled Kelompok. Members of the Kelompok choose chirmn (ketu) to represent them in the villge (des or dusun) wter committee, nd to be responsible for dy-to-dy dministrtion of the Kelompok, including collecting wter fees (if ny), orgnizing gotong-royong support for construction nd mintennce, nd other relted ctivities. The Ketu Kelompok reports to the villge wter committee (clled the PPSAB before nd during construction, nd either BPAB or HIPPAM4 fter construction). The committee (or pniti) idelly is elected by wter users themselves, or by villge leders who represent the wishes of the people. Typiclly, the election of the pniti tkes plce in meeting of forml villge leders, the LMD. In relity, this election my or my not represent the views of the mjority of villgers. For exmple, bsed only on the evlution tem s dmittedly limited field visits, pnitis in WJ in CARE-ssisted communities tended to be less representtive of villgers interests thn they did in EJ, where exceptionlly representtive committees were common. In NTB, the ctions of ~ The term I3PAB is used in WJ nd NTB. HIPPAM is legl entity which exists on the order of the Bupti in EJ. They ll men the sme orgniztion. 6

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37 the pniti were sometimes constrined by religious sectrinism nd subsequently divided loylties within communities. When BPAB/HIPPAMs represent the wishes of the people in the community, they cn be powerful tools for motivting people to ctively nd constructively prticipte in the mngement, opertion, mintennce, nd finncing of their WS&S systems. When BPAB/HIPPAMs re not representtive, problems cn occur which cn hve mjor impct upon system opertion. For exmple, if prticulr Kelompok feels disenfrnchised by virtue of inequitble wter distribution (this ws observed on severl occsions), due to the undue influence of certin members of n unrepresenttive BPAB/HIPPAM, the people in tht Kelompok my decide to stop pying their wter fees. This my in turn led to other Kelompoks lso refusing to py fees, thereby reducing funds vilble for needed repirs. If continued, necessry repirs my not occur, nd some (or ll) sections of the system my fll into disrepir. Another exmple of how lck of community orgniztion cn cuse system to deteriorte is when the BPAB/HIPPAM itself is not powerful enough5 to mke nd enforce the necessry decisions (e.g., bout wter triff levels, distribution prctices, unuthorized connections) to properly operte or mintin their system. Field stff perceptions regrding villge ledership in prticulr nd the nture of community prticiption/mngement in generl my hve strong impct on the success of CARE efforts in prticulr community. Some FOs mnge to quickly identify those members of the trget community whose commitment (or lck thereof) will spell the success (or filure) of project interventions there. Other FOs seem somewht constrined by lck of understnding of the depth nd complexity of socil nd politicl interctions within communities. They my feel tht communities re homogeneous, nd tht they need only del with villge leders to scertin the interests of the community s whole. This my not lwys be the cse. Some villge leders my hve gends other thn simply improving the community s wter supply nd snittion fcilities. It is importnt to scertin whether villgers views re dequtely represented by forml leders by niking direct contcts with those villgers. Admittedly, this my be both politiclly nd logisticlly problemtic, but it my lso be crucil to the success of project ctivities in tht community Women s Involvement in WS&S Projects In its community mngement pproch to development, CARE hs identified severl key fctors: fcilittion, stff trining nd support, technology options, vilbility nd use of credit, nd commitment to the involvement of women. The involvement of women in the plnning nd mngement of WS&S projects is necessry nd pproprite becuse Women benefit directly from the convenience nd time-sving ~ For exmple, if the BPAB/HIPPAM decisions were overruled by Kepl Des or other politiclly powerful member of the community. 7

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39 spects of closer wter source, nd from the improved helth of their children. 6 Despite inherent culturl constrints, the ctive involvement of women in development ctivities hs been officilly mndted in government development policy for severl decdes. This involvement is primrily through the Fmily Welfre Movement (or PKK) which extends from the ntionl to the villge level. Despite this, the sttus of women in mny CARE-ssisted communities is still low, nd this restricts their existing roles in WS&S development projects. In WASHES ctivities, women typiclly provided support functions such s common lborers nd cooking food for people working on construction. After construction, in some villges, women were responsible for ctivities such s fee collection, helth nd hygiene ctivities, nd clening MCKs. Few, however, hd forml decision-mking roles7. CARE should continue to identify possibilities to involve women in its WS&S development ctivities in whtever wys possible, including system design (e.g., deciding where MCKs will be built), resource mobiliztion (fee collection nd mngement), s members of the BPAB/HIPPAM (t minimum on the helth/snittion subcommittee), s Kelompok leders to orgnize MCK clening, nd wherever possible, s forml members nd leders of PBAB/HIPPAMs. The role of women in WS&S system mngement is new nd evolving, nd should be expnded wherever opportunities re identified. In summry, the cpbility of government nd other externl orgniztions to mintin WS&S fcilities in rurl communities is limited by finncil, humn resources, nd other logisticl constrints. Therefore, community mngement is the most resonble pproch to ddress the problem of sustinbility of WS&S fcilities built with CARE s ssistnce. good community mngement requires ctive community prticiption in the preprtion nd implementtion of the project. Community prticiption is only successful if it reflects community s socio-culturl uniqueness. 6 CARE/Indonesi Community Mngement Workshop Hndout, My ~In WJ nd EJ, some women re elected villge dministrtors. In severl sites in ll provinces, women re in the BPAB/HIPPAM helth section. 8

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41 3.2 ENGINEERING DESIGN AND CONSTRUCTION This section discusses WASHES system design nd construction8. The min technologies used were grvity-flow piped systems, hndpumps, nd rinwter ctchment tnks. In some cses, hydrulic rms were used. Wter sources were minly springs, with some rivers nd smll creeks. Grvity systems usully consisted of ctchments ( cptering ), collection tnk sometimes cting s sedimenttion tnk, the min pipeline (typiclly 1 km to 6 km in length), brek-pressure tnk(s) s required, secondry pipes to reservoirs, nd wter points. Depending on wter qulity, slow snd filters were sometimes used, prticulrly if the source ws river. There were four kinds of wter points. Most common ws n MC ( wshing/bthing fcility with seprte res for men nd women, with two tps per re), usully with tps nd concrete pron for wshing clothes nd dishes. Another kind ws n MCK, which is n MC with two ltrines--one for men nd one for women. At some sites, there were house connections (sometimes included in system design, sometimes simply hoses plced in MC tnks). Finlly, some sites hd public stndpipes. CARE hndpump sites vried between provinces. The most common hndpump used ws the improved Bndung hndpump, developed in prt with USAID ssistnce. A vriety of other vrible qulity nd relibility pumps (ll mnufctured in Indonesi) were lso instlled. In Sumbw, hndpurnps tended to be clustered in one re (e.g., Penne, where 12 Bndung hndpumps were instlled on hnd-drilled wells in penurbn dusun). This gretly increses the probbility tht the pumps will be properly mintined, since only one trined mechnic is needed to service ll the pumps. The other criteri which helps to insure user support of hndpumps is the lck of esy ccess to other nerby wter sources. If these exist, users re seldom inclined to py the dditionl cost of instlling nd mintining hndpumps to gin the incrementl benefits of improved wter qulity nd ccessibility. Rinwter ctchment tnks were instlled primrily in the Pcitn District, in res where springs or other surfce wter sources were unvilble or, t best, very inconvenient. Their use is restricted somewht by vrible rinfll ptterns in different res. The rinwter systems consisted of suitbly modifying conventionl roof drins to collect rinwter in ferrocement storge tnk built ner the house. Nine hydrulic rms ( hydrms ) were instlled in WJ nd NTI3. Their use is firly restricted due to the specific topogrphy needed for their proper nd efficient opertion, but where used, they were successfully mintined nd fully opertionl. Snittion coverge ws not nerly s extensive s wter supply coverge t the mjority of WASHES sites. Mny sites (especilly in Est Jv) did hve n djoining ltrine(s) built onto the MC, clled n MCK. Of the 482 communities where CARE-ssisted WS&S systems were instlled between 1979 nd 1990, 1,658 MCs nd 623 community stndpipes were constructed, nd 78 communities were ssisted in building totl of 875 MCKs9. For more detil on engineering of the CARE systems, see the CSFW Project midterm evlution report. 8 ~ See lso Chpter 3.4 for more detil on snittion fcilities. 9

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43 3.2.1 Design Stndrds In generl, CARE designs compred well with ccepted stndrds for grvity flow wter systems. While in some cses they ppered overbuilt (in dimensionl terms), the smll dditionl cost nd effort will likely be repid in dditionl yers of reltively trouble free opertion. This strtegy of building higher initil cost systems is likely to result in lower O&M costs for the community. CARE designs in most cses re quite similr to those used by the Ministry of Public Works (Cipt Kry), responsible for developing ll Government of Indonesi s wter supply system specifictions. There re some minor vritions tht do not pper to compromise the qulity of the CARE systems, nd some which reflect technicl innovtions which CARE stff developed such s the following: bmboo cement tnks, which substitute bmboo mtting for steel reinforcing brs in tnk sidewlls (sving money, but requiring more ttention to detil during construction); removble floor-mounted overflow pipes in wter storge tnks nd some cpterings which cn be esily lifted out of their sets when clening or drining is necessry. This sves using the lrge nd expensive gte vlve which would otherwise he necessry on the clenout/drin pipe; loclly mnufctured (in Bndung nd Lombok) hydrulic rms for lifting wler t suitble sites; novel slow snd filter designs; nd dissemintion of the firly relible low-hed Bndung hndpump. CARE systems re designed to meet demnd of 60 to 80 liters per cpit per dy over(lpcd), 10for yers. with Cipt n Kry ssumed designs demnd 60 LPCD rte of for 1.5 house percent to 2.5 percent nd per 30 yer LPCD public wter points, with ssume 2 growth percent growth rte overconnections, the sme period. Systemexperiences designs vried between CARE Field Offices, reflecting differences in stff to some extent, differences in loclly vilble mterils. For exmple,orinpreferences some res nd, centrl reservoirs (mde of ferrocement, bmboo cement, or msonry using either brick or stone) were used with seprte wter points. In other 10 A Hiiclbook of Gii ity Flow Wter Systems, Thoms Jordn, IT Publictions, London,

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45 res, MCs nd MCKs were built with djoining storge tnks nd no centrl reservoir. CARE should undertke review by its wter project stff of the strengths nd weknesses of designs bsed on the experiences of the three Field Offices nd, coupled with review of Cipt Kry designs nd discussion with their collegues in Cipt Kry, stndrdize their designs cross ll field offices. Communities sometimes undertke system expnsion (of new MCKs) without due considertion of the technicl limits (~~pipeline crrying cpcity, source debit) of their systems. During initil system design, CARE technicl stff should dvise communities on where potentil system expnsion opportunities exist nd where they do not. While this is pprently done verblly, it would help to leve specific written instructions on copy of the community s wter system pln with the wter committee indicting where (nd how much) system expnsion is possible. This would help prevent excessive demnd on subsystems which re not designed or built to hndle tht incresed level of demnd Community-Assisted Construction CARE s community prticiption nd mngement pproch to wter nd snittion system development hs both dvntges nd disdvntges. The dvntges become obvious long fter initil construction, when communities tend to be much more well-equipped to del with technicl problems involving system opertion, mintennce, nd repir thn communities which do not receive CARE community trining. The disdvntges of using community members to build their own systems tend to become most evident during the initil construction phse of the project. Being inexperienced, they require much more guidnce nd direct supervision thn experienced builders. Even though ssisted by competent CARE field stff, when the community needs to mobilize nd mnge its own resources (humn, mteril, nd finncil) prior to nd during construction, the process tkes much longer thn it might otherwise. Construction is generlly well done. However, some problems tht were observed (e.g., indequte ttention to grey wter dringe) could be resolved by closer supervision nd periodic inspections during the construction process by experienced FOs, coupled with review by project stff summrizing wht subcomponents must be included in the systems during construction (e.g., vent pipes for tnks, dringe chnnels wy from tnk foundtions, concrete blocks to hold exposed GI pipes firmly in plce). Following re some of the problems noted t some WASHES sites: control devices on wter tnks re regulr mintennce problem. Flot vlves brek esily, nd inlet vlves brek nd re removed so tht there is no wy to blnce the system s wter distribution. CARE should look into lterntives for flot vlves which do not brek so esily; for wter storge tnks (which re generlly well constructed with few instnces of significnt leks), instlling simple vent pipes in the top of the tnk would reduce inside ir/wter tempertures nd reduce microorgnism growth. During system construction, the MC(K) should not be 11

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47 built until piped wter is vilble t the site. This might help to reduce surfce crcking when wter is not redily vilble to keep msonry dmp while curing; for spring ctchments, there were no vent pipes or surfce wter dringe chnnels. Some were missing pipe screens on outlets to prevent clogging; t some sites, pipelines running tinder rods were broken by unexpectedly hevy lods (trucks pssing overhed) becuse they were not buried properly or deep enough. At some sites, there were exposed sections of PVC pipe--this is not cceptble prctice under ny circumstnces; nd construction of dequte snittion fcilities vried significntly by province. In NTB, MCKs nd privte ltrines were bsent in mny CAREssisted communities. Locl hygiene prctices nd lck of wreness of the linkge between proper snittion nd helth mke it difficult for CARE to convince communities of the need to build snittion fcilities in some res. In generl, EJ sites hd the gretest number of ltrine instlltions (both public nd privte) per community, followed by WJ, then NTB. While dringe ws included in CARE stndrd designs, t mny sites visited during the evlution, dringe chnnels hd either significntly deteriorted or were bsent ltogether due to indequte mintennce or improper construction. Where it did exist, dringe from MC/MCKs ws typiclly chnnelled to nturl dringe (e.g., nerby creek), fish ponds (especilly in WJ), wood tretment ponds (soking construction lumber is used s nturl wood preservtive technique in both EJ nd WJ), or to irrigte fruit/shde trees or vegetble grdens (especilly in Pcitn, Dompu, nd Sumbw). Some sites visited hd dequte covered dringe chnnels from MCs to nturl dringe or storge poois, but mny did not. To minimize growth nd trnsmission of pthogens, proper dringe systems1 need to be built nd properly mintined t ll sites. Due to low wreness of the helth impcts of improperly hndled wstewter, the dringe sitution in NTB ws generlly worse thn t most EJ sites visited Technology Selection CARE ws fortunte tht mny of its potentil sites ccommodted grvity flow piped wter systems. Where such systems cn be used, they re generlly the esiest nd chepest to build nd mintin of ny improved wter supplies. For res where shllow or moderte wter tbles exist, hndpumps re the next lest complex nd inexpensive options. However, hndpump mintennce is generlly greter thn well-built grvity ~ This mens using either buried pipe, or tightly fitted stone/brick chnnels, bridged t ll typicl pth crossings. See Prt Three, Section