Governance Assessment of Community Based Reduction Waste Programs in Makassar, South Sulawesi, Indonesia

1. Introduction

More than 55% of Indonesia's garbage is categorized as organic waste, with the remaining waste being non-organic [1]. In particular, the Waste Management Law was passed by the Indonesian government in 2008. To address Indonesia's issues with waste management, other rules, such as those of the Minister of Environment Regulation, were most recently modified in 2021. However, Indonesian waste management practices have not been able to move beyond the "collect, transport, and dispose the waste" model up to this point. In addition, Indonesian cities typically dispose of trash by depositing it in landfills [1], [2].

Furthermore, Indonesia faces waste management challenges such as a lack of community involvement in policymaking, insufficient waste management capabilities, confined strategies, unsustainable long-term methods for managing waste, and a lack of coordination and cooperation between the government and the community [3], [4]. The final section deals to the many actors engaged at multiple levels in Indonesia. The management of waste in Indonesia is supervised not only by the city government, but also at the federal, national, provincial, and local levels. Furthermore, Indonesia has more detailed systems in place that involve more institutions at each level of government. There are numerous governance entities participating in waste management in urban areas in the city government, for instance: kecamatan (sub-district/council), kelurahan (urban village), rukun warga/RW (Hamlet), and rukun tetangga/RT (Neighborhood). RW and RT are voluntarily controlled by community leaders [5], [6].

The waste bank (WB) was established to engage the community in sorting non-organic garbage, which is a potential target for recycling in Indonesia. Recycling communities, such as WB communities, function as informal institutions established by citizens. This group was developed to raise public awareness of the 3R and sustainability concepts of waste management. A WB's system is unique in that it is similar to a financial bank's system. Rather than saving money, WB users deposit recyclable waste and profit financially from the Waste Bank[7]–[12].

In particular, this study evaluates the policy implementation of community-based management through the WB in Makassar, South Sulawesi, Indonesia, which has approximately 373,653.931 tons of waste generated per year. [13]. This city also has 600 WBs spread across 15 districts, which are operated to combat unsustainable practices in waste management; however, only 118 WBs (20%) were active [13]. So it is necessary to look for things that encourage or hinder the implementation of this program and policy. The Makassar WB program has demonstrated the value of government intervention in municipal waste segregation schemes, particularly in enhancing community-based waste management, promoting community participation, and including all stakeholders [4], [9], [14], [15].

2. Research Methodology

This article employs the Governance Assessment Tool (GAT) [16] to assess policy implementation in order to determine if it supports or restricts the governance of CBSWM in a city. As a result, primary data was gathered from the outcomes of interviews with each stakeholder, which was conducted using simple questions as given in Table 1. In practice, these questions can be developed based on the facts of the situation. The core data for this study were gathered mostly through semi-structured, in-depth interviews. Meanwhile, secondary data were acquired from previously provided data by other parties, such as reports and regulations of relevant agencies. The following is a description of the research procedure.

Figure 1. The Procedure of the study.

Figure 1. The Procedure of the study.

GAT is designed to provide a comprehensive understanding of the benefits and obstacles involved with policy implementation [17], [18]. It might express the difficulties encountered in implementing connected policies or programs, regardless of whether the conditions and techniques employed were favorable [19]. This assessment method comprises five governance dimensions that can be used to evaluate policy implementation, namely: level and scale, actors and networks, problem perspectives and goal ambitions, strategic and instruments, and responsibilities and resources. GAT also employs four evaluation criteria to assess each dimension which are: extent, coherence, flexibility, and intensity [19]. The use of GAT in this study can be seen based on the following dimensions and criteria matrix.

To conduct a more complex GAT analysis, the parties to be interviewed must be determined. They were chosen based on information gleaned by observing the flow of CBSWM installation. In general, national, provincial, and municipal governments are involved in this management. Furthermore, as illustrated in Figure 2, parties outside of the government, such as NGOs, academics, and the commercial sector, support the execution of this strategy.

In this study, the collected data was collated, analyzed, and reviewed in a specific manner to answer the questions. Data is gathered specifically by combining waste management-related questions. The acquired data is then analyzed using the GAT Assessment Matrix, as shown in Table 2.

Following the execution of the approach and analysis, the following more comprehensive results regarding the analysis may be explained.

3. Results

Table 4 summarizes the findings of the research, which were based on the results of interviews, observations, and literature searches. In summary, the GAT is divided into three primary categories: "Low" (shown in red), "Medium" (shown in yellow), and "Height" (shown in green). The "+" sign denotes a condition in which CBSWM policy execution has begun to improve (towards high), whereas the "-" sign denotes an inadequate condition.

This section may be divided by subheadings. It should provide a concise and precise description of the experimental results, their interpretation, as well as the experimental conclusions that can be drawn.

Table 2. Quality Results of GAT Assessment on CBSWM Program in Makassar.

		Criteria
		Extent	Coherence	Flexibility	Intensity
Dimension	Levels and Scale	+		+
	Actors and Networks	+	-
	Problem Perspectives and Goal Ambitions				+
	Strategies and Instruments			+
	Responsibilities and Resources			-
	Assessed as	+		+

Table 2. Quality Results of GAT Assessment on CBSWM Program in Makassar.

		Criteria
		Extent	Coherence	Flexibility	Intensity
Dimension	Levels and Scale	+		+
	Actors and Networks	+	-
	Problem Perspectives and Goal Ambitions				+
	Strategies and Instruments			+
	Responsibilities and Resources			-
	Assessed as	+		+

Based on the results of interviews and evaluations, the implementation of the CBSWM policy in Makassar is classified as low to medium quality. This is because on the level and scale dimensions, the quality of governance is classified as low to moderate. The same phenomenon also occurs in the actor and network dimensions. Supporting conditions exist in the dimensions of problem perspective and goal ambition, as well as methods and instruments. While the condition of responsibility and resources are the lowest condition because it has three low (restrictive) criteria.

4. Discussion

4.1. Levels and Scale

This study's levels and scale dimensions produce balanced results. Two of the criteria yield moderate outcomes, while the other two yield low results. Extent and Flexibility are favorable indicators because the implementation of CBSWM policy has increased from the national to the local government level, although participation at the provincial level is felt to be lacking. This deficiency causes inequality in terms of evaluation and support from the provincial level. Furthermore, even though the strict bureaucratic system is a barrier to policy execution, any participant can provide flexible input and be actively involved.

Environmental awareness on a worldwide scale has been introduced in Indonesia, pushing the government to adopt long-term plans, as in earlier research explained. WB is supported by national and regional regulations in Indonesia, where the Ministry of Environment organizes these programs. The achievement of proper waste bank operations in Indonesia is one of their assessment criteria [22].

4.2. Actors and Networks

On the actor and network dimensions, similar findings were found using various criteria. The criteria of extent and coherence yield modest outcomes in this dimension, while flexibility and intensity remain low. The breadth of policy implementation can be seen from the many actors at every current level, regardless of whether they have effectively carried out their tasks and obligations. So far, the relevant parties have sat in appropriate positions to assist the execution of the CBSWM policy in Makassar in particular. Furthermore, contact and consistency among Makassar's environmental agency and other stakeholders can aid in the successful dissemination and implementation of CBSWM policies in Makassar. Constraints in this dimension arise from the difficulty for decision-makers to add new actors. This decision is left to the policy implementation leader.

A recycling company is one actor who is not involved in the policy's execution in Makassar. The paucity of recycling businesses in this city impedes the flow of recycled materials. Because there is no recycling company in this area, there is no certainty that this program will be viable or continue in the future. The waste management hierarchy should include workable strategies, i.e. strategies that can reduce or eliminate waste in a more sustainable way before it is disposed of [23]–[26]. When compared to Surabaya, another Indonesian city that also empowers residents for waste management, this region's program may be more sustainable in there because the city has recycling companies [1].

4.3. Problem Perspectives and Goal Ambitions

There are different outcomes on this dimension for each criterion, such as the coherence criterion, which scores high because the various goals to be achieved are seen as a parallel series for the main goal, namely better waste management, despite the fact that each level of government has a different role at each level. Determination of policies and management objectives to be more sustainable is the result of the formulation of the national government [27]. This policy must be obeyed by every lower level government.

The extent requirement, on the other hand, is seen as low, because the quick changes in political situations in Indonesia and Makassar have an impact on the aims to be reached. When the responsible party changes, so does the power that can be relied on to deliver the essential resources or facilities [4]. Similarly, the flexibility criterion is graded low since demanding change necessitates consent from the highest level of government; in other words, politics had a significant part in this transformation. This makes changing goals extremely difficult if the government in charge does not have the same vision as the prior government. The intensity of executing this policy, on the other hand, is moderate because the waste reduction program can be carried out extensively through WB. However, it has not properly attracted every citizen to participate in implementing a more sustainable waste management.

4.4. Strategies and Instruments

The strategies and instruments dimensions, like the problem perspectives and goal ambitions dimensions cause various disparities in each criterion. As evidenced by the supportive extent criterion, practically all significant tools, namely regulations, norms, policies/laws, programs, and initiatives, have been deployed although in some situations; law enforcement is still felt to be less stringent. In practice, the city administration collaborates with adjacent non-governmental organizations to deliver education through cooperative programs. Coherence is regarded as limited since law enforcement is not administered to its full extent, despite statutes governing administrative punishments for individuals who do not follow the norms. As a result, the emphasis has been solely on willingness to participate (the decision to be involved or not). This is also supported by socio-cultural aspects and other community conditions, such as local customs and the relationship between each group (those who sort and who don't), are also factors that influence the amount of waste that is generated and reprocessed [3], [28].

This component has modest flexibility because although governance can integrate numerous instruments as long as they are properly regulated, inflexibility arises as a result of ambiguous incentives for each region or community that has effectively adopted sustainable environmental management in its territory. Furthermore, new instruments such as incentives will raise the budget, and the additional budget will have to go via the bureaucratic system.

Many people refuse to sort or bring their garbage to WB, since they believe that they have already paid a charge to the government, so it is evident that the effective implementation of CBSWM required a perceived need. Typically, the greatest need for improved waste collection is in residential districts, where population density is high and waste storage capacity is limited. The community believes that sorting rubbish is the responsibility of the government. Nonetheless, concern for waste management can increase if it is initiated by the community itself [29].

4.5. Responsibilities and Resources

There are three criteria on this dimension that are regarded low: extent, coherence, and intensity. Because of Makassar City's inadequate resources, the extent is regarded modest. Furthermore, funding is now derived primarily from the municipal government budget, with no aid from other levels of government or outside entities. The coherence criterion is then deemed low due to a lack of support from the national and provincial governments. The CBSWM programs in Makassar are centralized due to segmented activities with solid organization. This make this program is more effectively manage when the parties involved are in adjacent locations [29].

Due to a lack of human and financial resources, the intensity criterion is regarded poor. Only those who participate in this program are willing to sort rubbish. Meanwhile, most rubbish is handled from their houses to houses, producing friction among some people who are unwilling to segregate waste. Flexibility, on the other hand, is seen as modest because the roles of each player do not overlap. The ability to integrate the collaboration of numerous players at various levels has a high potential for implementation.

5. Conclusions

This study examines the implementation of community-based solid waste management (CBSWM) policies in Makassar, South Sulawesi, Indonesia using the Governance Assessment Tool (GAT) as the instrument for this study. According to the findings of the study, policy implementation was limited due to a lack of support from one stakeholder. It produces a bleak situation in this implementation, where implementers require higher-level direction and evaluation.

Furthermore, participation at a higher level is not conceivable. Parties at the lowest level must abide by the mentioned rules and bureaucracy. Another element impeding the implementation of this program is a lack of waste management legislation enforcement. Changes in thinking are usually simple, but in the case of Indonesia, the influence of political conditions, such as changes in leadership, is more powerful. The government has not been able to ensure appropriate facilities and resources for CBSWM. Makassar also lacks a recycling company that can assist in the conversion of garbage into more valuable resources.

Meanwhile, the local government's cooperation has succeeded in encouraging the implementation of 3R through waste bank (WB) in Makassar. This party works with NGOs, the community, and the private sector to reduce garbage through the management of the waste. Cooperation with other parties ranges from providing facilities to drawing clear lines in the management of household waste. If an integrated waste management system is required in the future, it is envisaged that cooperation with parties outside of Makassar should be carried out.