FROM BUREAUCRACY TO COLLABORATION: A CASE STUDY OF COMMUNITY BASED WASTE MANAGEMENT IN BANYUMAS, CENTRAL JAVA, INDONESIA i ABSTRACT

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3 1 FROM BUREAUCRACY TO COLLABORATION: A CASE STUDY OF COMMUNITY BASED WASTE MANAGEMENT IN BANYUMAS, CENTRAL JAVA, INDONESIA i Slamet Rosyadi *) Swastha Dharma *) Irawan **) *) Lecturer at Master Program of Administrative Science, Jenderal Soedirman University **) Student at Master Program of Administrative Science, Jenderal Soedirman University ABSTRACT In line with rapidly growing population in Indonesia, number of wastes resulted from household activities have been also increasing. However, this waste problem management relies on merely public bureaucracy intervention. As a consequence, the bureaucracy cannot handle a huge of amount of wastes. Instead, much of waste remains in rivers, open space, drainage, and other places. This fact shows that the problem of growing waste needs public participation. Based on our simulation using government reports particularly in Banyumas Regency as a case study, we found that community based waste management practices offered a prospective solution. Public participation at household level will encourage collaboration management to handle waste problems in Banyumas. Key words: Collaboration, public participation, waste management A. Background Waste management problems in Indonesia represent not only techical, but also institutional matters. Government intervention in handling waste management for years has led to low public participation. The government relies on its bureaucracy to manage waste problem rather than triggers community participation. In line with rapidly growing population and consumption pattern, amount of waste has been increasing beyond bureaucracy capacity. Unwell waste management by bureaucracy has brought about many problems such as diseases, polution and environmental degradation (Khajuria, Yamamoto & Morioka, 2010; Khan & Ansari, 2010). Banyumas regency as one of districts in Central Java Province nowsday is experiencing waste problem threat. Data shows that waste volume in 2011 has i Presented paper at The Second International Conference on Public Management on May 30-31, 2013 in Hilton Hotel, Pattaya, Thailand. The first author is invited as a guest speaker in join conference involving three universities: Jenderal Soedirman (Indonesia), Bhurapa (Thailand), and Yunan (China).

4 2 achieved more than m 3. The waste volume increases every year amounting to 4 % per annum. Though waste volume trend decreases along year, but according to estimation, it will be more than m 3 in 2015 (see Figure 1). Sampah Waste (in(m3) m 3 ) 6.000, , , , , , , , , , Source: Banyumas Spacial Planning, Cleanliness, and Civil Engineering Agency Figure 1. Waste Volume in Banyumas Regency in dan estimation from 2012 to 2015 (in m 3 ) The large waste volume in Banyumas Regency shows that the local government has no good enough capacity to handle it well. We found that only 10 % of total waste volume can be managed by local agency. From 2008 to 2011, proportion of waste volume that can be handled by local agency changes not much. Based on this problem, the objective of this paper is to make comparative analysis of waste management between government and collaboration approach. B. Research Methods Secondary data was used to make comparative analysis of waste management. Secondary data was collected from official reports of Banyumas agencies such as Statictical Bureu, Spacial Planning, Cleanliness, and Civil Engineering Agency and other local agencies. The data was then analyzed by descriptive statictics and costbenefit analysis.

5 3 Central Java Province Figure 2. The Map of Banyumas District Source: C. Result and Discussion 1. Factors Trigerring Waste Population Growth Number of population in Banyumas Regency keeps increasing every year. Based on Statistical Bureau report, data shows that number of population in Banyumas is about 1,521,083 people per year. This large number of population certainly produces waste in large number. Figure 3. Development of Population Source: Banyumas Statistical Bureau

6 4 Housing Development In line with population growth, the need for housing has also improved since Data showed that in 2008 number of housing development achieved 182,130 units, but it then increased 231,661 units in In other words, number of built housing for 3 years has reached 208,447 on avarage. This factor also contributes to increase of waste production. Figure 4. Housing Development Source: Banyumas Statistical Bureau Market Development Number of market including traditional, local and modern markets in Banyumas Regency also keep increasing. Development of market for 5 years has increased 62 markets. Various products sold by market both organic and unorganic ones, of course, generates many types of waste. Figure 5. Market Development Source: Banyumas Statistical Bureau

7 5 2. Bureaucracy-Centered Waste Management Based on identication cost and benefit, we found that there were six components of cost spent by bureaucracy. The six components are described below. (a) Transportation Vehicles No. Existing Conditions Demand Name of Vehicles Amount Name of Vehicles Amount 1. Truck Feel 1 Truck Feel 2 2. Dump Truck 32 Dump Truck Truck Amrol 2 Truck Amrol 3 4. Pick Up 12 Pick Up 15 Costs for transportation vehicles procurement as follows: No. Name of Total price (in Rp) amount Price vehicles 1. Truck Feel 2 500,000,000 1,000,000, Dump Truck ,000,000 11,700,000, Truck Amrol 3 375,000,000 1,125,000, Pick Up ,000,000 2,250,000,000,- Jumlah 59 16,075,000,000,- Based on costs estimation above, bureaucracy should provide money untill Rp. 16,075,000,000 for transportation vehicles expenses. (b) Waste Wagon Number of waste wagons to support waste management controlled by bureaucracy are about 993 units to cover 331 villages. Costs needed for providing waste wagons are around Rp. 1,489,500,000/ (c) Human Resource 26,832,000,000,-. Costs for giving salary for employment (2,236 people) for one year are about Rp. (d) Gasoline 5,803,500,000. Costs required to support transportation vehicles for one year are about Rp. (e) Waste Container Costs needed for container procurement are around Rp. 2,025,000,000.

8 6 (f) Waste Disposal Area Costs that should be provided by the Banyumas government for land and infastructure procurement are about Rp. 2,000,000,000. government duty. So, the following tabel summarizes all costs if waste management becomes the No. Components Cost 1. Transport Vehicle 16,075,000, Waste Wagon 1,489,500, Salary 26,832,000, Gasoline 5,803,500, Waste Container 2,025,000, Waste Disposal Area 2,000,000,000 Total cost 54,225,000,000 Based on cost component analysis, we found that total costs provided by the government for the first one year were about Rp. 54,225,000,000. At meanwhile, incomes gained by the government from waste retribution (by assumption: 428,191 households pay their obligation amounting to Rp 5,000 per mount) are about Rp ,-. Benefits gained from bureaucracy approach are as follows: (a) Community will be easy to throw waste away in every where since the government will handle it. (b) Waste retribution received by the government will enable for the government to manage waste problems. However, there are some social costs if community strongly relies on the government. (a) Community s responsibility becomes low and they will be more dependent on the government role in waste management. (b) Lack of innovation and creativity in community side. (c) This policy will only shift waste problems from household to waste disposal area without any treatment, for example waste recycling. (d) This policy will only handle waste problem and no have multiplier effects for community such as economic, education and health. (3) Collaboration Waste Management

9 7 In Indonesia, public participation in waste management has been legitimized in Law No. 18/2008 on Waste Management. According to this law, community can take the role in waste management held by the government or local government. In addition, this policy also encourages public to create two waste management communities in each subdistrict (kecamatan). Cost component analysis identified some costs of collaboration application as follows: (a) Socialization for creating waste communities. Since collaborative approach is a new method in waste management, so the Banyumas government should undertake socialization activities for the citizen. Socialization cost for one year is estimated around Rp. 324,000,000. (b) Formation of community based waste management Of 27 subdistricts in Banyumas, there will be 2 community groups having responsibility in waste management. Therefore, there will be 54 community groups. There are some facilities that the government provides to support community groups. First, building community meeting hall for 54 community groups will need cost around Rp 8,100,000,000 (by assumption: one hall requires cost of Rp 150,000,000). Second, if each group needs some employees at least 6 people, so it will require 324 employees for operational duties. Their salary can be taken from benefits of waste selling handled by community groups. Thrid, waste motor provision is utilized to transport organic and unorganic waste from citizen houses to waste community, well knows as waste banks. If each waste bank needs 2 motor cycles, so the total of motor cycles for 54 community groups will be around 108 units. To fulfill the need of waste motor cycles, the cost of it will be about Rp. 1,512,000,000. Fourth, composter mechine should be provided to mixture organic waste. The total cost for providing composter will be aroun Rp. 10,540,000,000. management. The following table will detail expenses to support community-based waste No. Cost Component Cost (in Rp) 1. Socialization 324,000, Formation of waste management 8,100,000,000 community groups 3. Waste Motor cycles 1,512,000, Composter Provision 10,540,000,000 Total 20,476,

10 8 So, the total cost needed for the first year is around Rp. 20,476,100,000. To obtain such a cost, the government can ask private sectors through their corporate social responsibility funds for assisting community groups to provide composter machines. By involving community and private sector in waste management collaboratively, there are some benefits as follows: (a) Community will be more independent and empowerful in waste management; (b) It can develop sense of responsibility for managing waste that the community produces. (c) There is a change in behaviour and mindset of community towards waste. (d) There will be mutiplier effects at community such economic effect. Waste will be recycled into beneficial product or managed by waste banks genering incomes for those involved in waste management. (e) Building responsibility of private sectors in handling social problems. However, some social costs will appear if collaboration approach will be applied. First, it might be conflict of interest among private, community and government in authority division. Second, it will take along time to socialize and empower communities to change their perspective, behavior and culture. D. Discussion Based on our analysis, there are some factors trigerring waste production such as population growth, housing and market development. Increases of the three factors can contribute to waste volume since their activities produce types of byproducts. Relying on bureaucracy intervention in waste management has bee proved ineffective solution (Koontz and Thomas, 2006). Bureuacracy only works for handling small portion of waste volume since they have incapacity to cover all waste problems. As a consequence, their works cannot improve environmental performance such as increases of waste volume. Opportunities to apply collaboration approach can improve environmental and organizational performance (see Mark, 2004; Green, et al., 2011). The case study also shows that application of collaboration will reduce costs for waste management that the goverment handles before. It can also attract other stakeholders from private sectors to support waste management. This situation in long run can change a governance structure in which the relation between public and government will be more equal than single intervention by government. In their study,

11 9 Davies and White (2012) found that collaborative governance could sthrengthen stakeholder empowerment and reduce cost of sustainable environmental management. E. Conclusion Collaborative solution to replace government solution has become an appropriate option to address environmental problems. Incapacity of public bureaucracy to respond socio-economic changes like population, setlement and market has increased more problematic in handling waste management. Instead, waste production has increased and unsolved by government solution. This study has shown that collaborative waste management is better and cheaper than bureaucracy-based waste management. Reference Davies, A.L, and White, R.M. (2012). Collaboration in natural resource governance: Reconciling stakeholder expectations in deer management in Scotland. Journal of Environmental Management, Vol. 112, pp Green, K.W., Zelbst, P.J., Bhadauria, V.S., and Meacham, J. (2011). Do environmental collaboration and monitoring enhance organizational performance? Industrial Management & Data Systems Vol. 112 No. 2, pp Khajuria, A., Yamamoto, Y., & Morioka, T. (2010). Estimation of Municipal Solid Waste Generation and Landfill Area in Asian Developing Countries. Journal of Environmental Biology, September Khan, M. A., & Ansari, I. Z. (2010). Municipal Solid Waste Management in India: A Case Study of Aligarh City. Pranjana, 13. Koontz, T.M., Thomas, C.W. (2006). What Do We Know and Need to Know about the Environmental Outcomes of Collaborative Management? Public Administration Review (December), Special Issue. Lubell, M., (2004). Collaborative Environmental Institutions: All Talk and No Action?. Journal of Policy Analysis and Management 23(3) (Summer 2004): pp