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Procedia Environmental Sciences 20 (2014) 593 - 601
4th International Conference on Sustainable Future for Human Security, SustaiN 2013
Model of Community-based Housing Development (CBHD) of Bedah Kampung Program in Surakarta Indonesia
Winny Astutia*, Daniel Adi Prasetyob
aCenter for Information and Regional Development, Jalan Ir. Sutami 36 A, Surakarta 57126, Indonesia bStudy Program of Urban and Regional Planning, Jalan Ir. Sutami 36 A, Surakarta 57126, Indonesia
Abstract
Urban Slums settlement or informal settlement is characterized by substandard houses with inadequate access to safe water sanitation and other infrastructure; insecure residential status; poor quality of house structure and insufficient living area. This is an urban phenomenon indicating poverty, where in fact most of urban poor lives in slums area. The approach of housing policy has shifted from provision to sustainable development and recently, integration with poverty alleviation strategy. Community-based Housing Development (CBHD) is one of Housing Delivery System in Indonesia, which is based on Community Empowerment to be one of the instrument for poverty alleviation. This research aims for firstly, identify the process of implementation of Bedah Kampung Program in Surakarta Indonesia; secondly, summarize model from the process of implementtion; and thirdly analyzes implications of Bedah Kampung Program for sustainable housing development. Method used in this research wasinductive approach with qualitative analysis by interviewing the head of POKJA (Working Group) Bedah Kampung as Community-based Organization, which is formed to conduct the program. The result of the research shows that Bedah Kampung Program has contributed to sustainable housing development of the area in the indicator of improvement of livability standard of human settlement; Regional development for maintaining integrated development of facility and function; development of institutional capacity for mobilization of resources on housing and human settlements; development of institutional capacity for mobilization of resources on housing and human settlements enhancement of community participation in the formulation, implementation and evaluation of plans and programmes. However, indicator of achievement of Human Development Indext in terms of economic improvement has not been achieved yet.
©2014TheAuthors.PublishedbyElsevierB.V. This is an open access article under the CC BY-NC-ND license
(http://creativecommons.Org/licenses/by-nc-nd/3.0/).
Selectionand peer-review under responsibility of the SustaiN conference committee and supported by Kyoto University;
(RISH),(OPIR),(GCOE-ARS)and (GSS) as co-hosts
Keywords : settlements, housing, community-based, kampung, Indonesia
* Corresponding author. Tel.: 62-271-087836469141; 62-271-08179451296; fax: 62-271-643666. E-mail address:winnyast@yahoo.com
1878-0296 © 2014 The Authors. Published by Elsevier B.V. This is an open access article under the CC BY-NC-ND license (http://creativecommons.org/licenses/by-nc-nd/3.0/).
Selection and peer-review under responsibility of the SustaiN conference committee and supported by Kyoto University; (RISH), (OPIR),
(GCOE-ARS) and (GSS) as co-hosts
doi:10.1016/j.proenv.2014.03.072
1. Introduction
1.1. Urban Poverty, Housing and Community Empowerment
Millennium Development Goals (MDGs) has placed Poverty Alleviation as the first goal. The difficulty of communities in escaping from the poverty is basically because the local organization does not give access for community inclusion, empowerment, and security. Therefore, empowerment of community means empowerment of community-based organization (CBO) of the slums area [1]. As the pre-requisite of community empowerment, it is compulsory to set mediator in any efforts and starting point for developing internal managerial capacity of the CBO [2]. The mediator has two important and strategic roles as follows [2] [3]; First, To help people to organize, to help community to articulate their needs and generate access for their own resources; second, To act as mediators, which have role as mediator between community and community-based organization in negotiating with other public agency as well as the government as human settlement resources.
The urban poor are also highly affected by the environmental problems such as inadequate urban infrastructure and services (water, drainage, sanitation) and poor housing conditions [4]. Their exclusion from decision making related to their environment has excluded them from having access to government provision of urban services as the involvement of community and community organization in the planning process is the key of success of government programs related to poverty reduction. Urban poor needs capacity building to participate and involve in the government program planning process and bring community members into contact with a wider network of individuals and organizations related to their cause through Collaborative Planning. Therefore, empowered community becomes the goal for CBHD, determining the success story of community's pathway out of poverty. Housing sector becomes indicator for poverty alleviation as access to housing, including housing affordability whether to rent or to own. Community also reserves the right to habit not only standard housing construction but also adequate living space, as well as security of tenure over the land and housing [4].
1.2. Housing Delivery System based on Community-based Housing Development in Surakarta
In Indonesia, there are two Housing Delivery System. Firstly is formal system, which is usually provided by formal developer and secondly is informal system, self-help system which is popular as community-based Housing Development (CBHD). The CBHD became very popular in Surakarta in the era of Mr Joko Widodo, Major of Surakarta City 2005-2012, when the problems of slums and squatter settlements became strategic issues of the city. Some housing policies were developed in order to overcome the problems as seen in the Fig. 1 below. The CBHD implied for development of Community-based Organization called POKJA, which was formed in 51 Kelurahan for the purpose of organizing program from the Local Goverment to be delivered to the target groups of community of substandard houses as beneficiaries. Some programs were developed based on Community Empowerment such as renovation of substandard housing (RTLH Program); relocation program; Sanimas; and Bedah Kampung.
1.3. Sustainable Development of Urban Kampung as a Human Settlement
Kampung is a clustered human settlement or community, larger than a hamlet but smaller than a town with the population ranging from low density to high density of population. Some urban Kampung indicates densely populated area, where substandard houses is habited by low-income families. Urban Kampung has usually developed due to process of urbanization, where the urban people who came from the same rural area live closer to each other in the early of occupancy in the marginal land in urban area [5]. Santosa [6] stated that development of human settlements and habitat cannot be separated from food, shelter and livelihood. Consequently, location for the human settlement cannot be apart from the sources of food. In the rural area, the human settlement has always been built close to the agricultural and forestry, whether in the urban area, this concept is associated with the closeness of kampung or human settlements to the sources of employment. In fact, the urban people inhabites the city center closed to the sources of employment.
Housing delivery system in Surakarta through CBHD
Improvement of Slums Area
Resettlements of
Squatter settlements along riverbank area
(illegal land)
Rehabilitation of housing and environment in one lots of land
improving quality and construction of houses
- land tenure-
improved qualiy and construction of houses
- public toilet (sanitation)
insfrastructure and public services
Resettlements (relocation) of riverbank residents to adequate land and housing
Fig. 1 Housing delivery system based on community-based housing development in Surakarta, Indonesia.
Sources : Astuti, 2012 based on interview survey with Working Unit of Surakarta Government and Consorsium
Concept of sustainable development of housing and human settlements has been stated by Santosa [7], that there are three strategies of achieving sustainable human settlements; firstly, livability standard to measure urban quality as human settlements; secondly, regional development to maintain coonnectivity and development of new facility and function area without a project approach and thirdly, specific institution for mobilization of resources on housing and human settlements before coming into market mechanism. The failure of housing and services provision is putting human settlements development into the market mechanism, which place the housing and human settlements as commodity rather than process and social entity. Sustainable human settlements have also indicated from achievement of MDGs and International instrument for housing right [8]. As stated in International covenant on Economic, Social and Cultural right (1966) in UN habitat 2003 that there is a right for having an adequate standard of living for himself and his family including adequate food, clothing and housing and continuous improvement of living conditions; the right for protection of the law against such interference of attacks (article 17 International covenant on Civil and political rights (1966) and the right for participating in the formulation, implementation and evaluation of plans and programs for national and regional development, which may affect them directly (ILO Convention no. 169 concerning Indigenous and Tribal Peoples (1989) in UN Habitat, 2003. Sustainability also means for achieving Human Development Index. As mentioned by Keynes [9], there is a clear positive correlation between public investment in social and physical infrastructure and progress of Human Development Index. He stated that there are three dimensions of HDI: life expectancy, educational attainment, and command over the resources needed for a decent living. It means there there is a strong correlation berween social development and physical environment improvement for sustainability growth of the area.
2. Kelurahan Danukusuman as Study Area of Implementation of Bedah kampung Program
Kelurahan Danukusuman is located in Kecamatan Serengan Surakarta city asa core city of SUBOSUKA Region, Central Java, Indonesia. It is surrounded by three regencies, i.e. Boyolali, Sukoharjo and Karanganyar. With the area of 44.04 square-km, it is dominated by developed areas with the population of approximately 600.000 people. The levels of poverty were as high as 22% covering 125,600 urban poor people [10]. Program of Bedah Kampung is a part of Kemenpera (Ministry of Public Housing) program namely BSP2S (Bantuan Stimulan Pembangunan Perumahan Swadaya = Stimulant Grant for Self-helped Housing Development ) and PKP (Peningkatan kualitas Perumahan = Human settlements improvement program).
In Surakarta, Bedah Kampung Program was conducted in Kelurahan Kadipiro in 2008 covering 68 beneficiaries communities of substandard houses and in Kelurahan Nusukan in 2009 covering 25 beneficiaries communities of
substandard houses. In 2010, Bedah Kampung program in the form of PKP has been applicated in the Kelurahan Danukusuman covering 200 target groups [11].
Fig. 2 Map of Surakarta and Kelurahan Danukusuman as a study area. Sources : Bappeda Surakarta City, 2011
Bedah Kampung is one of Strategy of Kampung Improvement Program in the inadequate standard of Kampung environment by integrating urban and rural area as an urban system of development. This program has formulated with integrating all relevant sectors, participating community to be involved in the implementation of Program, synergizing with the city development strategy and plan for enhancing the roles and functions of the Kampung in the development system of the city and area for increasing community welfare and productivity. Bedah Kampung Program was developed based on theMinistry of Public Housing Act No. 14/Permen/M/2011, which is purposed for development of area by integrating social, economic and physical environment approach.
This program has distributed stimulant Grant to the beneficiaries through Community-based Organization called KSM, LKM and POKJA as revolving funds. The fund has been prioritized to the Groups of Community in the specified area by Aids for new development of houses of Rp 10 million per house; Improvement of house for Rp 5 million; Aids for development of urban infrastructure and utility of the kampung. Kampung Danukusuman is located in Kecamatan Serengan. The Program has been implemented in Kampung Kajen by the target groups of 200 households affecting 200 units of sub-standard houses (Fig. 2).
3. Research Methodology
The research was conducted in qualitative method and inductive approach. In-depth interviews were addressed to several government institutions related to CBHD involved in the lesson-learned of Implementation of Bedah Kampung Program as follows: Planning and Development Board (Badan Perencanaan dan Pembangunan Daerah, BAPPEDA) of Surakarta City, Board of Community Empowerment, Woman Empowerment and Family Planning (Badan Pemberdayaan Masyarakat, Pemberdayaan Perempuan dan Keluarga Berencana, BAPERMAS PP and KB), Consortium of NGOs, and Department of Public Works.
Whereas representations of Community-based Organizations interviewed in this research were POKJA BEDAH KAMPUNG in Kelurahan Danukusuman. Analysis was conducted in 3 stages, first, analysis process of implementation process of Bedah Kampung Program in Surakarta Indonesia; second, summarize model from the process of implementation; and third, analysis of descriptive qualitative of sustainable development of kampung generated by Bedah Kampung Program, using variabels of improvement of livability standard of human settlement; sustainable development of regional development for maintaining integrated development of facility and function; Development of institutional capacity for mobilization of resources on housing and human settlements ; Enhancement of Community participation in the formulation, implementation and evaluation of plans and programmes; and enhancement of of Human Development Indicators related to public investment in social, economic and physical infrastructure (Fig. 3).
Background of the
High poverty level in Indonesia
Most poor people lives in sums settlements and
kampun
CBHD as housing delivery system based on Community empowerment and poverty alleviation and sustainability
Kampung
Program
contributes to
sustainable
housing
development
Teoretical Review
urban Poverty, Housing and Community Empowerment
Variabel
Process and mechanism of Bedah Kampung Progam
identify process of implementation of Bedah Kampung Program
from the process of implem enttion
analyzing implications of Bedah Kampung ^ Program for
sustainable housing development
Housing Delivery System based on Community-based HousingDevelopme nt
Analysi Process s of
Process of implementation of BK Program
Summarize Model of Implem entation of
BedahKampung Program
Sustainable
Development
of Urban » Kampung as k
_J a Human I \
Settlement '—ry
Improvement of livability standard integrated development of facility and function
Development of institutional capacity for mobilization of
housing and huma settlements Enhancement of
Community
p articip ation evaluation of plans and programmes implementation -HDI : social,
environment
Fig. 3 Map of methodological framework. Sources : Analysis of Astuti,W. 2013
4. Results and Discussion
4.1. Process and Summarize Model of Implementation of Bedah Kampung Program
Bedah Kampung Program is a national program under the Ministry of Public Housing through coordinated program in National, Provincial and Local Level. This program is a part of community-based insentive program, which normatively the government provides only 10% of housing and infrastructure development budget and the rest of 90% should be provided by community as program share in self-help approach. The purposes of the program are: firstly, to distribute insentive grants of self-helped housing development through LKM (Lembaga Keuangan Mikro, Micro Finance Institution) and LKNB (lembaga Keuangan Non-Bank, Non-Bank Finance Institution); secondly, to distribute insentive grants to beneficiaries inhabit substandard houses and environment; and thirdly,to improve institutional capacity of Provincial Government and Local Government in Self-helped Housing Program implementation.
In order to distribute housing and infrastructure grants from the government, the national government regulated mechanisms in the provincial level, district level, as well as in kelurahan level. This mechanism has implication to the formation of POKJA (Kelompok Kerja, Community Working Group). Figure 4 shows that in the National levels, the program requires the formation of SATKER PS (Satuan Kerja Perumahan Swadaya,Working Unit of Self-helped Housing), POKJA PUSAT (Central POKJA) and KMP (Konsultan Manajemen Pusat, Central Management Consultant), that have a role for preparation of guidelines and coordination with KMW in the provincial levels. In Provincial Levels, the program requires the formation of Provincial POKJA and KMW (Koordinator Manajemen Wilayah, Regional Management Coordinator), which has a role for program coordination in Local (city/regency) in specified province. In Local level, there are POKJA City/ Regency and LKM/ LKNB as Micro Finance and NonBank Finance Institution, which playa rolefor grant distribution directly to the beneficiaries (people and communities).
Ministry of Public Housing- Deputy of Self help housing
Socialization and coordination with the Local Government in the City level
Asistance from NGO
Fig. 4 Coordination activities in implementation of self-helped housing
development.
Sources: kemenpera.go.id
Fig. 5 Summarized model of implementation of Bedah Kampung Program.
Sources : summarized from interview survey with POKJA
Process of implementation of Bedah Kampung Program in Kelurahan Danukusuman are as follows: 1) Program internalization, which was conducted in the National level in the Ministry of Public Housing (Kemenpera) by developing the regulation and legal basis for Bedah Kampung Program implementation; 2). Socialization and Coordination with the local government of Surakarta by Kemenpera through the Board of Planning and Development of Surakarta as a coordinative institution; 3).Prioritization of Case Study areas by the specified local government institution according to the criterias compiled by Kemenpera. These processes were conducted by series of field surveys to the Kecamatan and Kelurahan, where there is slums area consists of 200 substandard houses in inadequate services in one integrated area; 4) Sosialization to the targetted beneficiaries, which was continued by formulation of POKJA Bedah kampung for the implementationof Bedah Kampung program. POKJA together with the head of LPMK was responsible for implementation of Bedah Kampung in RW IX and RW X Kelurahan Danukusuman, ensuring that the program met the government goals and objectives; 5) Preparation of Proposal by the POKJA Kelurahan to obtain Grants of Housing Rehabilitation and Environment Improvement. Proposal was submitted to Kemenpera through the POKJA Kota (Pokja in the City level); 6) the Granted of Grants from Kemenpera, then collected by POKJA Kelurahan; 7) Formation of seven sub POKJA kelurahan for implementation of Program according to the related sectors; 8) Compose of Community Action Plan for preparing priority programs based on community. The method used in this processes was Participatory Rural Appraisal; and 9) Program Implementation, which was done by several commitments and community forums. Figure 5 above shows the summarized model of implementation of Bedah Kampung Program.
4.2. Implication of Bedah Kampung Program for Sustainable Growth of Housing and Human Settlements
Development
Implementation of the program has led to growth in terms of economic development by the rising numbers of business and economic activities; social institution development by the improvement of community capacity in
program planning and implementation and physical environment development by housing quality and urban infrastructure development. According to indicators of Sustainable Development for Housing and Human Settlements Development, implementations of Bedah Kampung Program in Kelurahan Danukusuman have resulted in some conditions as explained below.
4.2.1. Improvement of livability standard of urban quality as human settlements
Bedah Kampung Program has resulted in improvement of housing construction and infrastructure conditions of the community as target of the program in order to meet the livability standard of the kampung. Figure 6 shows gradual improvement of housing construction gererated by the program.
Fig. 6 Improvement of housing condition and infratructure resulted in Bedah Kampung Program. Sources : BAPPEDA Surakarta City, 2011
Improvement of physical and social infrastructure can also be seen from enhancement of garbage collection management; renovation of bale warga (community multipurpose building), posyandu (community health services), renovation of public toilet, improvement of local street, local drainage, and communal water absorption facilities.
Fig. 7 Results of the program of improvement of 1. Garbage collection, 2. Bale warga, 3.Posyandu, 4. Public toilet, 5. Local street and drainage. Sources: BAPPEDA Surakarta City, 2011
4.2.2. Regional development for maintaining integrated development of facility and function
Bedah Kampung program applied community-based approach based on regional development. This approach positioned Kampung Danukusuman as a part of city development and growth. Improvement of Kampung contributes to enhancement of vitality of the area and improvement of function of the city according to the Master Plan of the city. Therefore the regional based approach of development maintains integration of kampung with the whole urban area and networks in some ways such as spatial and sectoral planning of the area, budget allocation and improvement of housing condition and infrastructure as well as community services.
4.2.3. Development of institutional capacity for mobilization of resources on housing and human settlements
It was shown in the processes and mechanisms of Bedah Kampung program implementation that several hierarchical coordination have been conducted in the National levels (Kemenpera), Regional levels (provincial government) and local levels (Surakarta city government). Apart from that, extensive participation and partnership have been formulated by the private sector in clean water provision. Another example of partnership built along the program is between NGS and community itself by self-helped development through the POKJA, LKM, LKNB and other parties involved in the development of Kampung Danukusuman. Interorganizational networks have been developed during implementation of program up to post-implementation of the program indicating the sustainability and development growth have been generated gradually and continuously . However, it was found that the program hasfailed to build integration and synergyamong the development programs of SKPD (working unit) of the local government of Surakarta City.
4.2.4. Enhancement of Community participation in the formulation, implementation and evaluation of plans and programmes
The program has involved NGOs who have some roles in implementation as: firsly, community assistant in the development of strategy as a part of community action plan; secondly, community assistant in construction of houses together with architect and architecture student from Gadjah Mada University and Sebelas Maret University and Diponegoro University; thirdly, capacity building and socialization to the community related to health condition of houses and environment and other assistance.
4.2.5. Enhancement of of Human Development Indicators related to public investment in social, economic and physical infrastructure.
Using TRIDAYA approach, which means improvement of socio economic condition as well as physical environment condition, Bedah Kampung Program has proved to gradually improve on physical conditions of housing and infrastructure. Conditions of local street, drainage and public toilet have been improved as well as garbage collection management. Social facilities such as posyandu, balai warga have also improved as facilities and spaces for social relationship and interaction enhancement of the community. However, according to the interview, this program has not succeded in mapping and identifying local economic activities of the community although there are some traditional and micro economic activities such as wood craft and others.
Fig. 8 Results of the Bedah Kampung Program Sources: Fieldwork, 2012
5. Conclusion
Community-based Housing Development (CBHD) as housing development based on empowerment of community is believed as one of the strategies for achieving sustainable development of human settlements. Bedah Kampung Program is one of CBHD Program which implies to the formation of community-based organization in
the form of POKJA and LKM as a strategic partner of local government and mediation role to the target community. From the process diagram of Bedah Kampung Program implementation, there is a visible indication that the development of institutional management happened hierarchically from National Level (Kemenpera) and regional level (provincial government); capacity building of the POKJA Bedah Kampung in management implementation of Program in the community level; capacity building of community in housing and infrastructure construction stage; cooperation with NGOs in the community assistance and all parties invitation in development process from goverment sectors as well as private sector and community. In terms of sustainability of human settlements development, because the program has only been applicated for 3 years, the long-terms outcome cannot be measured. However, from the output program, through intervention of government program, it was found that the quality of housing and infrastructure of the area has been increased; participation of community in the planning and implementation is visible eventhough by the NGOs assistance; efforts for integration with citywide networks is seen. However, increased economic condition of community can not be indicated for the short terms as the program was also unsuceed in identification of local economic activities of the community.
Acknowledgements
Directorate General of Higher Education (DIKTI) Indonesia, for full financial support to this research
Rector and Head of Research and Development Institute of Sebelas Maret University
Head of Bureau of Planning and Development of Surakarta City (BAPPEDA)
Head of Bureau of Community and Woman Empowerment and Family Planning
Consortium of NGOs of Surakarta
Head of POKJA Bedah Kampung in kelurahan Danukusuman
Laboratory of Housing and Human Settlements Institute Technology of Sepuluh Nopember (ITS) Surabaya: Prof Happy Santosa; Purwanita, Ph.D; Prof Johan Silas
Research team: Dyah Widi Astuti, M.Sc, Daniel Prasetyo, Diah Setiyani, Habibah, Hanung Testianto. Dedy
Syarifudin, Arif Fakih
Editorial assistant: Isti Andini, ST, MT
All parties, which cannot be mentioned one by one.
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