2013年-世界发展银行全球_Indonesia___Evaluation_of_the_Urban_Community_Driven_Development_Program_Program_Nasional_Pemberdayaan_Masyarakat_Mandiri_Perkotaan_36页_2mb

报告摘要

Summary of Indonesia: Evaluation of the Urban Community Driven Development Program (PNPM-Urban)

Core Content

The PNPM-Urban (Program Nasional Pemberdayaan Masyarakat Mandiri Perkotaan) is a Community Driven Development (CDD) program in Indonesia that provides block grants to urban communities for small-scale infrastructure and social/economic development projects. It is a key component of the Government of Indonesia's (GOI) poverty reduction strategy and is designed to foster community participation, improve local governance, and deliver basic needs at the community level. The program is currently implemented across all 11,000 urban wards, benefiting 22.3 million people.

Main Findings

1. CDD Approach

The CDD model is effective in promoting community participation and decision-making.
Communities are involved in planning, voting, and implementation of projects.
The model helps build social capital and improves living conditions.

2. Links with Local Government

There is collaboration between PNPM-Urban and local governments, particularly in areas where musrenbang (annual local planning meetings) are actively used.
Stronger collaboration is associated with active communication between local government and community representatives.
Duplication and lack of coordination are issues in some areas, requiring better integration with local budgeting processes.

3. Capacity Building and Facilitators

Facilitators play a crucial role in training, accounting, and monitoring.
Strong facilitators are characterized by clear communication, technical expertise, and community engagement.
Capacity building is recommended to improve the effectiveness of facilitators and ensure better support for communities.

4. Governance and Control Mechanisms

The current governance structure is perceived as effective, though there is room for improvement.
Recommendations include strengthening transparency, accountability, and institutionalizing the program within local government processes.

5. Quality of Infrastructure

Infrastructure quality is generally high, as per independent assessments.
Factors contributing to quality include community involvement, technical support, and adequate funding.
There is a need for standardization and cost-effectiveness improvements.

6. Block Grants and PAPG/ND Pilot

Communities receive relatively small block grants, while the PAPG and ND pilots offer larger investments.
The ND program includes spatial planning and larger projects, which have shown potential for more comprehensive development.
However, implementation challenges related to capacity and processes need to be addressed.

Key Recommendations

For Current Program Design

Enhance social and economic activities to better meet household needs.
Implement new pilot activities like the "Generasi" model, which integrates poverty, health, and education targets.
Increase female participation through outreach, childcare arrangements, and special funding for women-led proposals.
Strengthen collaboration with local governments by integrating PNPM-Urban into musrenbang and using incentives to promote cooperation.
Simplify reporting responsibilities for facilitators to allow more time for community engagement and socialization.
Develop a performance-based reward system to improve motivation and results.

For the Longer Term Role of PNPM-Urban

Expand the program to address comprehensive slum upgrading, especially in high-density and high-need areas.
Incorporate spatial planning and community-led development into national urban strategy.
Improve targeting efficiency of social programs to better serve the urban poor.
Address informal settlements by extending basic services and legal recognition.
Learn from other countries' experiences to improve urban transformation planning and program design.
Continuously evaluate and introduce new initiatives to meet the evolving needs of urban communities.

Program Structure

Community-based organizations (BKM) are central to the program, with elected leaders guiding community development plans (CDP).
Grants are provided in three tranches per year, with amounts ranging from US$15,000 to US$30,000 based on population size.
Facilitators assist in project implementation, monitoring, and financial reporting.
The program is managed at the national level by the Ministry of Public Works and overseen by a steering committee involving multiple ministries and donors.

Pilot Programs

PAPG (Poverty Alleviation Partnership Grant) involves joint proposals between local governments and communities, with matching funds.
ND (Neighborhood Development) includes spatial planning and larger investments, with 70% of funds allocated to implementation and training.
ND was initially piloted in 18 sites and expanded to 255 more.
The ND sites are not listed due to confidentiality and are referred to as Site 1, 2, and 3.

Conclusion

The evaluation of the PNPM-Urban program indicates that it has been successful in promoting community participation and improving local governance. However, there are opportunities for improvement, particularly in strengthening social and economic activities, enhancing gender inclusivity, and aligning with local budgeting processes. The ND and PAPG pilots show potential for scaling up and addressing more complex urban challenges, but require capacity building and process refinement. The program is expected to be reformed and expanded as part of the PNPM-IV urban program, with a focus on longer-term urban development and poverty reduction.