ENVIRONMENTAL MONITORING FOR PROGRAM PENGEMBANGAN KECAMATAN (PPK) AND PROGRAM NASIONAL PEMBERDAYAAN MASYARAKAT (PNPM)

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1 ENVIRONMENTAL MONITORING FOR PROGRAM PENGEMBANGAN KECAMATAN (PPK) AND PROGRAM NASIONAL PEMBERDAYAAN MASYARAKAT (PNPM) A Review of Environmental Impacts Resulting from PPK and PNPM Implemented Micro-Infrastructure Projects in Eastern Indonesia between 1999 and 2008 Thursday, 06 November 2008 Prepared for: Mr. Victor Bottini PNPM Team Leader World Bank Jakarta Jl. Diponegoro No.8 Jakarta Indonesia Prepared by: Mr. Ted E. Kulongoski, E.I.T. Kupang, West Timor (N.T.T.) Indonesia tekulongoski@hotmail.com

2 EXECUTIVE SUMMARY This report is based solely on Program Pengembangan Kecamatan (PPK) and Program Nasional Pemberdayaan Masyarakat (PNPM) monitoring missions conducted between November 2006 and November 2008 in the 12 Provinces of Eastern Indonesia. The purpose is to examine the scope and magnitude of any negative environmental impacts resulting from the implementation of micro-infrastructure projects through the PPK/PNPM program and to provide recommendations on impact mitigation strategies. Projects are identified as microinfrastructure because they are built for daily community use, are located in or around the village, and require only small financial inputs. PPK/PNPM project budgets range from a low of USD 1,300 (IDR ) for building a single toilet/shower/washing building, to a high of USD 40,700 (IDR ) for a gravity water system serving 600 families. Mean project cost is USD 8,000 (IDR ). Data was compiled from 16 Mission Summary Reports completed for the World Bank Office Jakarta between November 2006 and November A total of 706 projects were reviewed in 331 villages in 95 Kecamatans in 10 Provinces throughout Eastern Indonesia. There were 18 different types of micro-infrastructure projects implemented by PPK/PNPM participant villages. Negative environmental impacts were identified in projects belonging to all 18 categorical groupings. Different types of projects were subject to specific types of negative impacts. Projects causing negative impacts to the environmental were ranked based on a three-tier system scaled as Low, Medium, or High. Each ranking is based on the physical magnitude of harm caused by the negative impact. A synopsis of the different types of project impacts includes: LOW (LOCALIZED IMPACT) Deficient Drainage Micro-Erosion from Runoff Septic Tank Discharge to Surface MEDIUM (LOCAL TO WIDESPREAD IMPACT) Importing Harvested Timber Ground Contamination from Petrochemicals Toilet System without Septic Tank HIGH (WIDESPREAD IMPACT) Dam over one-meter Tall on Watercourse Dirt Road without Drainage Direct Surface Water Pollution Approximately 45% (321 out of 706) of PPK/PNPM funded projects are causing some kind of environmental impact. Lack of drainage and micro-erosion are the most frequently occurring impacts causing 84% of all observed negative impacts from PPK/PNPM projects. Although these impacts occur frequently, they are given a Low ranking, as they tend to be very localized and to have more direct negative impact on the PPK/PNPM project than on the environment. Mitigating these two problems requires ensuring sufficient drainage is incorporated into every project design and that projects are built according to the design. PPK/PNPM projects that required the importing of harvested timber and projects involving the use of combustion engines were ranked Medium and account for 9% of observed negative environmental impacts. PPK/PNPM projects requiring more timber than can be felled locally from community forests, must purchase and import wood using a supplier. Therefore, a policy needs to be developed that ensures that PPK/PNPM projects are acquiring timber in a sustainable manner and are not supporting (unknowingly) the practice of illegal logging. The use of combustion engines in specific types of PPK/PNPM projects (electricity PPK/PNPM Environmental Monitoring Summary November 2008 Page 2

3 generation and water pumping) has resulted in negative environment impacts in 21 out of 49 projects observed (43%). Negative environmental impacts include ground contamination from petrochemical spills and air pollution from exhaust emissions. Minimum design requirements are recommended for any project implementing the use of a combustion engine. The most widespread negative environmental impacts, those receiving a High ranking, comprise only 2% of all PPK/PNPM projects observed, and are caused by road and water projects. The road projects of concern are those built on grade, made from dirt, and without proper drainage. Of 62 road projects reviewed, seven fit this classification (11.3%). Because of these widespread impacts, it is imperative that PPK/PNPM dirt road projects include drainage as part of their standard design. Although infrequent, PPK/PNPM water projects are also causing widespread negative environmental impacts, including projects that build dams that exceed one-meter in height and completely constrain the watercourse and washing/bathing projects that discharge pollutants directly into the surface water. A total of two dams out of 60 observed water projects (3.3%) fit the classification. Three washing/bathing projects were observed directly contaminating surface water. To mitigate these impacts, it is recommended to minimize physical and/or chemical changes on all natural watercourses by keeping pollutants out of surface water and by building only check-dams less than a meter tall and that do not completely constrain the entire watercourse. Overall, environmental impacts resulting from PPK/PNPM projects can be attributed to deficiencies in project design. Mitigation of these negative environmental impacts requires improvements in the design and construction of PPK/PNPM projects (i.e., meeting minimum standards for certain types of projects), environmental assessment during the project planning phase, mitigation of known impacts, and on-going environmental monitoring. Sanctions and other remedial actions can be used to address PPK/PNPM projects or staff who fail to comply with established standard operating procedures. PPK/PNPM Environmental Monitoring Summary November 2008 Page 3

4 INTRODUCTION The information presented in this report is based solely on Program Pengembangan Kecamatan (PPK) and Program Nasional Pemberdayaan Masyarakat (PNPM) monitoring missions conducted between November 2006 and November 2008 in the 12 Provinces of Eastern Indonesia. The information presented hereafter is based on the technical critiques of completed or near-completed micro-infrastructure projects implemented as part of the PPK/PNPM program. Projects are identified as micro-infrastructure because they are built for daily community use, are located in or around the village, and have an implementation budget of no more than USD 40,000. As part of the monitoring missions, PPK/PNPM micro-infrastructure projects were scrutinized for any environmental impacts resulting from implementation. Projects causing negative impacts to the environmental were ranked based on a three-tier system scaled as Low, Medium, or High. Each ranking is based on the physical magnitude of harm caused by the negative impact. A negative impact considered benign and localized received a Low ranking, where as a negative impact that affected a large area or was considered a health and safety hazard received a High ranking. An intermediary ranking, Medium, was added to accommodate negative impacts too serious for a Low ranking but not severe enough for a High ranking. OBJECTIVE The objective is to examine the scope and magnitude of negative environmental impacts resulting from the implementation of micro-infrastructure projects through the PPK/PNPM program and to provide recommendations on what is needed by way of a mitigation strategy. METHOD Data used in this report was compiled from 16 Mission Summary Reports completed for the World Bank Office Jakarta between November 2006 and November A Province-by- Province summary of the 16 mission trips is presented in Table 1. Table 1: Summary of PPK/PNPM monitoring missions completed for the World Bank ( ). Provinces Visited No. of Visits No. of Kecamatans/ Districts Visited No. of Villages Visited No. of Projects 1. Gorontalo Maluku Maluku Utara Nusa Tenggara Timur Papua Papua Barat Sulawesi Barat Sulawesi Tengah Sulawesi Tenggara Sulawesi Utara Total: A total of 706 projects were reviewed in 331 villages in 95 Kecamatans in 10 Provinces throughout Eastern Indonesia. The sample size for specific Provinces varies considerably, PPK/PNPM Environmental Monitoring Summary November 2008 Page 4

5 with 12 projects reviewed in Nusa Tenggara Timur (the smallest number) and 176 projects reviewed in Papua Barat (the largest number). Since the focus of this report is on PPK/PNPM projects in general, the overall number of projects reviewed (n=706) is large enough to be used to draw general conclusions concerning negative environmental impacts. LOCATION Mission visits took place in ten Provinces of Eastern Indonesia (Figure 1). > SULAWESI UTARA > GORONTALO > SULAWESI TENGAH > SULAWESI BARAT > SULAWESI TENGGARA > MALUKU UTARA > PAPUA BARAT > PAPUA > MALUKU > NUSA TENGGARA TIMUR Figure 1: Map of Eastern Indonesia indicating the 10 Provinces where project data was collected. PROJECTS REVIEWED PPK/PNPM monitoring missions reviewed a total of 706 micro-infrastructure projects in a total of 331 villages. Villages implemented anywhere from one to seven projects between 1999 and PPK/PNPM project budgets range from as low as USD 1,300 (IDR ) for building a single toilet/shower/washing building, to a high of USD 40,700 (IDR ) for a gravity water system serving 600 families. Mean project cost is USD 8,000 (IDR ). There were 18 different types of micro-infrastructure projects implemented by PPK/PNPM participant villages (Table 2). The three most frequently observed PPK/PNPM projects are toilets, buildings, and roads. The three least often observed PPK/PNPM projects are microhydro turbines, washing facilities, and irrigation projects. PPK/PNPM Environmental Monitoring Summary November 2008 Page 5

6 Table 2: Distribution of PPK/PNPM projects reviewed based on type of project and Province. PPK/PNPM Micro- Infrastructure Projects by Province Gorontalo Maluku Maluku Utara Nusa Tenggara Timur Papua Papua Barat Sulawesi Barat Sulawesi Tengah Sulawesi Tenggara Sulawesi Utara Total by Project Gravity Water Systems Wells Pumped Water Systems Irrigation Roads Cement Walkways/Stairs Toilets Washing Facilities Micro-Hydro Electricity Drainage Ditches Culverts Retaining Walls Sea Walls Engine/Generator Electricity Buildings Wood Boardwalks Docks & Piers Bridges Miscellaneous RESULTS Total by Province: Excluding the Miscellaneous category in Table 2, negative environmental impacts were identified in projects belonging to all main categorical groupings. Different types of projects were subject to specific types of negative impacts. The following examples provide a synopsis of the different types of PPK/PNPM projects, how the projects are causing negative impacts on the environment, and the severity of that impact. The project synopses are ranked using the Low, Medium, and High system discussed earlier in the Introduction. PPK/PNPM Environmental Monitoring Summary November 2008 Page 6

7 LOW (LOCALIZED IMPACT) DEFICIENT DRAINAGE TO MANAGE EXCESS WATER Resulting Environmental Impact: Without adequate drainage to collect and move water away, excess water runs onto the ground and can create standing water and mud. This problem can occur at water collection points, at toilet/washing buildings, along roads, and around buildings. The impact is localized and typically benign in nature. Frequency of Problem: Deficient drainage was observed in approximately 24% of PPK/PNPM projects. Recommended Mitigation: Ensure drainage is incorporated into every project design. MICRO-EROSION DUE TO STORM RUNOFF Resulting Environmental Impact: Planning for storm runoff from buildings, roads and bridges is necessary to prevent micro-erosion from becoming a problem. Although localized, the erosion due to runoff can, over time, undermine foundations of buildings, undercut wing-walls on bridges, and create potholes and ruts in roads. Heavy rains occur annually in Indonesia. Frequency of Problem: Micro-erosion was observed occurring in approximately 14% of PPK/PNPM projects. Recommended Mitigation: Ensure drainage is incorporated into every project design. SEPTIC TANK DISCHARGING TO SURFACE Resulting Environmental Impact: In wet areas, where the ground is saturated or the water table is high, effluent discharged or leaking from a septic tank is able to surface, pool, and even spread. If left unchecked, the harmful effluent can spread beyond the local site, impacting a much larger area. Observations indicate that beneficiaries typically stop using the toilet facility if the septic tank is not working properly. Frequency of Problem: Only five (out of 103) septic tanks observed had surface discharging. Recommended Mitigation: Choosing an appropriate location for the septic tank and ensuring the septic tank meets minimum standard design (i.e., two chambers and a soak-away). PPK/PNPM Environmental Monitoring Summary November 2008 Page 7

8 MEDIUM (LOCAL TO WIDESPREAD IMPACT) TIMBER HARVESTING FOR BOARDWALK, BRIDGE, BUILDING, AND BOAT DOCK PROJECTS Resulting Environmental Impact: Harvesting trees for PPK/PNPM projects impacts not only the local area (i.e., trees cut locally) but can also be more widespread (i.e., if the timber is cut and imported from another location). When wood is harvested from another location and imported, it is uncertain if the wood was obtained legally and/or harvested in a sustainable manner. Frequency of Problem: A total of eight (out of 706) PPK/PNPM projects were observed to be importing timber from beyond the local area. Recommended Mitigation: If timber for a project must be imported (can t be obtained locally), there needs to be a mechanism to ensure purchased wood was legally harvested. GROUND CONTAMINATION FROM FUEL/OIL USED FOR COMBUSTION ENGINES Resulting Environmental Impact: Using engines to power certain types of PPK/PNPM projects (i.e., electrical generators and water pumps) has resulted in petrol chemicals (diesel, petrol, and oil) being spilled and contaminating the site where the engine is used. Frequency of Problem: Nearly half (43%) of all PPK/PNPM electricity and water pump projects employing a combustion engine have caused environmental contamination to the project site. These projects make up 7% of projects observed. Recommended Mitigation: Mandatory design requirements are needed for any project requiring the use of a combustion engine. TOILETS BUILT WITHOUT SEPTIC TANKS Resulting Environmental Impact: Without a septic tank as a repository, human fecal waste from PPK/PNPM toilet projects is discharged directly into the environment. Once discharged, the human waste becomes a contaminant in the local marine ecology where it can negatively impact aquatic flora and fauna. Frequency of Problem: Five toilets (out of 103 units) were observed with no septic tank. Four of the toilets are located in Kabupaten Fak Fak (Province Papua Barat). Recommended Mitigation: All toilet projects must be built with a standard design septic tank. PPK/PNPM Environmental Monitoring Summary November 2008 Page 8

9 HIGH (WIDESPREAD IMPACT) DAMS OVER ONE-METER IN HEIGHT ON WATERCOURSES Resulting Environmental Impact: Building a dam over one meter high that completely constrains a natural watercourse can impact the hydraulics both upstream and downstream. The impact of a dam can also result in changes to the riparian ecology depending on the location and size of the dam. Dams also pose a health and safety risk for people and property downstream of the dam. Frequency of Problem: Three dams were built over one-meter tall out of 56 water projects. Recommended Mitigation: Only check-dams should be built for PPK/PNPM projects (i.e., dams less than 1 meter high and that do not constrain the entire watercourse). STEEP ROAD WITHOUT DRAINAGE Resulting Environmental Impact: Dirt roads built on an ascent or decent without proper drainage will deteriorate due to erosion caused by storm runoff. Factors such as soil type, grade, and annual precipitation will all contribute to the rate and magnitude of the erosion. Erosion has negative impacts on the environment all along the road right-of-way, as well as on any existing downhill watercourses. Frequency of Problem: One percent of road projects observed are steep with poor drainage. Recommended Mitigation: Road projects must be designed with appropriate drainage (i.e., drainage ditches, culverts, bridges, and 4-5% crown). DIRECT SURFACE WATER POLLUTION FROM PUBLIC WASHING & BATHING AREA Resulting Environmental Impact: Continued contamination of natural watercourses due to the direct introduction of detergents into the stream ecosystem, as well as large quantities of nonbiodegradable plastic soap sachets. Contamination results from a number of water polluting activities, including washing clothes, washing dishes, and bathing Frequency of Problem: Three PPK/PNPM projects were observed contributing to direct and continued surface water pollution in Papua Barat. Recommended Mitigation: All washing/bathing projects must be located a minimum of 30 meters from any water body and ensure that runoff is not allowed to enter the water system. PPK/PNPM Environmental Monitoring Summary November 2008 Page 9

10 Table 3 presents a summary of the observed negative environmental impacts caused by the 706 PPK/PNPM implemented projects reviewed for this report. The negative impacts are grouped by Province and in the same Low, Medium, and High ranking presented earlier. Table 3: Summary of negative environmental impacts caused by PPK/PNPM projects by Province. Negative Environmental Impacts by Province LOW MEDIUM HIGH Total Projects by Province: Deficient Drainage Micro-Erosion from Runoff Septic Tank Discharge Timber Harvesting Ground Contamination No Septic Tank Dam on Rivers Steep Road / No Drainage Surface Water Pollution Total Impacts by Province: DISCUSSION Gorontalo Maluku Maluku Utara Nusa Tenggara Timur Papua Papua Barat Sulawesi Barat Sulawesi Tengah Sulawesi Tenggara Sulawesi Utara Total by Impact Percent by Impact % % % % % % % % % % % Approximately 45% (321 out of 706) of PPK/PNPM funded projects are causing some kind of environmental impact. Lack of drainage and micro-erosion are the most frequently occurring impacts causing 84% of all observed negative impacts from PPK/PNPM projects. Although these impacts occur frequently, they are given a Low ranking, as they tend to be very localized and to have more direct negative impact on the PPK/PNPM project than on the environment. The issue is that, although localized standing water and mud may not be direct environmental hazards, they can have indirect impacts on the health and well being of the community. Standing water is a breeding place for mosquitoes, a vector that causes a variety PPK/PNPM Environmental Monitoring Summary November 2008 Page 10

11 of diseases throughout Indonesia. Standing water attracts animals to come and drink, bringing animal waste, disease (hookworm), and contamination to the water collection point. Standing water and mud make access to the water collection point difficult for people trying to carry heavy water containers over wet and slippery ground. Mitigating these two problems, which cause 84% of all negative environmental impacts, requires ensuring sufficient drainage is incorporated into every project design and that projects are built according to the design. PPK/PNPM projects that required the importing of harvested timber and projects involving the use of combustion engines were ranked Medium and account for 9% of observed negative environmental impacts. Although Indonesian law allows for the legal felling and use of timber from community forests (if certified by the village head that the timber is for local consumption), there are PPK/PNPM projects that require more wood than can be acquired locally or that need specialized wood not found in the community forests. These projects require wood to be purchased from a supplier and imported from outside the local area. Through this acquisition process, it may or may not be clear where the timber was harvested or the manner in which it was harvested. Therefore, policy needs to be developed that ensures that PPK/PNPM projects are acquiring timber in a sustainable manner and are not supporting (unknowingly) the practice of illegal logging. The use of combustion engines in specific types of PPK/PNPM projects (electricity generation and water pumping) has resulted in negative impacts on the environment in 21 out of 49 projects observed (43%). Negative environmental impacts include ground contamination from petrochemical spills and air pollution from exhaust emissions. The failings of engine projects are that there have been no best practices established to mitigate the negative environmental impacts. By developing minimum design requirements, the negative impacts from engine projects can be greatly reduced. Design requirements shall include: 1) any building built to shelter an engine must have a raised, cement slab floor and open ventilation in the walls; 2) a leak-proof depository must be built for storing fuel and oil; 3) an absorbent material must be kept available near the engine to be used to soak-up any accidental spills of fuel and/or oil; 4) the location of the engine must be 30 meters away from any surface watercourses, including wells and boreholes; and 5) the engine exhaust pipe must extend to the outside through a hole in the roof or wall. The most widespread negative environmental impacts, those receiving a High ranking, comprise only 2% of all PPK/PNPM projects observed, and are caused by road and water projects. The road projects of concern are those built on grade, made from dirt, and without proper drainage. Of 62 road projects reviewed, seven fit this classification (11.3%). The issue is that without drainage, the annual rainy season experienced throughout Eastern Indonesia can deteriorate the state of a dirt road to impassable in a matter of months. The resulting erosion from storm runoff not only damages the road, but also negatively impacts the environment along the entire expanse of roadway. These impacts include destabilization of the land contributing to landslides; the creation of gullies that channel and accelerate water, making it more damaging; sedimentation of downhill areas including watercourses, and the loss of groundcover that helps stabilize the soil. Because of these widespread impacts, it is imperative that PPK/PNPM dirt road projects include drainage as part of their standard design. Although infrequent, PPK/PNPM water projects are also causing widespread negative environmental impacts, including projects that build dams that exceed one-meter in height and completely constrain the watercourse and washing/bathing projects that discharge PPK/PNPM Environmental Monitoring Summary November 2008 Page 11

12 pollutants directly into the surface water. A total of two dams out of 60 observed water projects (3.3%) fit the classification. Three washing/bathing projects (built in Papua Barat) were observed directly contaminating surface water. Dam projects cause negative environmental impacts as a result of hydraulic changes to the watercourse s natural flow by creating a large reservoir of stagnant water behind the dam. The creation of a reservoir can result in an increase in water temperature and a decrease in the water oxygen content, both conditions harmful to endemic aquatic flora and fauna. Indirect impacts from creating a large, stagnant body of water include a breeding place for vectors that affect human health, a place where people will want to swim, bathe, and wash, and a location where thirsty animals will come seeking a drink. Chemical changes can occur to the watercourse through the introduction of detergents with high concentrations of phosphates. Additional phosphate in the watercourse can completely disrupt the aquatic equilibrium and negatively impact the riparian ecology. All of these factors contribute to a decrease in water quality. It is therefore best to minimize physical and/or chemical impacts on all natural watercourses by keeping pollutants out of surface water and by building check-dams less than a meter tall and that do not completely constrain the entire watercourse. CONCLUSION Of the 706 PPK/PNPM projects reviewed in Eastern Indonesia, 321 projects were found to be impacting the environment. Of these projects, 85.7% were given a Low ranking, which indicated that the environmental impact was nominal, most frequently caused by microerosion and/or a lack of drainage. Ensuring that sufficient drainage is incorporated into every project design and that projects are built according to design can mitigate these impacts. Although not nearly as numerous, of greater concern are the PPK/PNPM projects that are having a more widespread negative impact on the environment. Impacts ranked Medium included projects that required the importing of harvested timber and projects that use combustion engines for project operation. To ensure PPK/PNPM projects are not contributing to illegal logging practices, policy needs to be developed to ensure all wood purchased and imported for projects is harvested in a sustainable and legal manner. Nearly half of all combustion engine projects were causing ground contamination from petrochemical spills. Therefore it is recommended that mandatory design requirements, as outlined in the discussion, are needed for all project requiring the use of a combustion engine. Projects causing widespread negative impacts to the environment, ranked as High, included dirt roads being built without proper drainage and water projects that contaminate surface water or build dams over one-meter in height and completely constrain the watercourse. These projects occur infrequently and when considered as a group, comprise 2% of all PPK/PNPM projects reviewed. With better monitoring by the technical consultants and mandatory sign-offs for these higher impact projects, negative environmental impacts can be reduced. Overall, environmental impacts resulting from PPK/PNPM projects can be attributed to deficiencies in project design. Mitigation of these negative environmental impacts requires improvements in the design and construction of PPK/PNPM projects (i.e., meeting minimum standards for certain types of projects), environmental assessment during the project planning phase, mitigation of known impacts, and on-going environmental monitoring. Sanctions and other remedial actions can be used to address PPK/PNPM projects or staff who fail to comply with established standard operating procedures. PPK/PNPM Environmental Monitoring Summary November 2008 Page 12

13 FURTHER INFORMATION & DETAILS For further information and details regarding the data used in this report, refer to the specific Mission Summary Reports (APPENDICES listed below): APPENDIX NAME A B C D E F G H I J K L M N O P PPK/PNPM_M0_Nusa Tengarra Timur_A Mission Summary PPK/PNPM_M1_Papua_A Mission Summary PPK/PNPM_M2_Papua Barat_A Mission Summary PPK/PNPM_M3_Maluku Utara_A Mission Summary PPK/PNPM_M4_Maluku_A Mission Summary PPK/PNPM_M5A_Sulawesi Tengah_A Mission Summary PPK/PNPM_M5B_Sulawesi Tenggara_A Mission Summary PPK/PNPM_M6_Papua Barat_A Mission Summary PPK/PNPM_M7_Nusa Tenggara Timur_A Mission Summary PPK/PNPM_M8_Sulawesi Utara_A Mission Summary PPK/PNPM_M9_Sulawesi Tenggara_A Mission Summary PPK/PNPM_M10_Sulawesi Barat_A Mission Summary PPK/PNPM_M11_Papua Barat_A Mission Summary PPK/PNPM_M12_Papua Selatan_A Mission Summary PPK/PNPM_M13_Maluku Utara_A Mission Summary PPK/PNPM_M14_Gorontalo_A Mission Summary PPK/PNPM Environmental Monitoring Summary November 2008 Page 13