To implement the program in a sustainable and scalable way, TSSM had to strategize its key activities carefully. Given the features of the TSSM program—and the sanitation and political and administrative context in which it was implemented—WSP had to accomplish the following broad tasks for successful implementation.
Develop the program approach and help national, provincial, and local governments prepare for program implementation. In order to implement the program, WSP had to introduce the approach in Indonesia effectively and secure national and provincial buy-in for its adoption.
Then WSP had to assemble a TSSM implementation team with the requisite expertise and work with it to determine an organizational model that would allow effective collaboration with various levels
of local stakeholders. Then, the TSSM implementation team had to find ways to help local governments develop program delivery mechanisms and secure the buy-in of key stakeholders for successful implementation. The team had to plan and execute these tasks in a manner that would establish the framework and conditions for sustainable and scalable TSSM delivery.
Determine how to deliver CLTS with a view to ensuring sustainability. CLTS had been previously implemented in Indonesia and several of its key features had been tested. TSSM now had to adapt the approach for delivery of CLTS at scale through local governments. The first step was to prepare districts, subdistricts, and villages for ―triggering‖— helping hamlet members recognize the need to change sanitation behaviors. This included helping districts develop strategies for identifying locations for triggering, and building capacity at all levels for conducting the CLTS triggering and monitoring activities. The next step was to conduct triggering in a set of hamlets and perform follow-up activities to achieve ODF outcomes, which local authorities would then replicate in more hamlets. The final step consisted of developing strategies to promote ODF attainment in communities, verifying community reports of ODF achievement and providing awards, and conducting follow-up to encourage maintenance of ODF gains.
Determine how to develop and deliver sanitation marketing. Unlike CLTS, sanitation marketing was an entirely new approach in Indonesia that the TSSM team had to design from the beginning. TSSM first had to invest time and resources to learn about market conditions, prepare sanitation marketing content and strategy, and build support for its adoption. Actual implementation of sanitation marketing consisted of developing and disseminating sanitation marketing materials for behavior change to strengthen demand. At the same time, TSSM developed and implemented supplier training to enhance the supply of hygienic and affordable latrine options.
The next three chapters describe how TSSM approached each of these activities, and identify strategies that worked well and those that need improvement.
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III. SETTING UP THE TSSM PROGRAM AND PREPARING FOR PROGRAM IMPLEMENTATION
When complex programs are introduced at scale in a country, the early stages of development and planning are important in setting the course for program performance. The initial set-up activities were particularly important in the case of TSSM because the intervention consisted of multiple components and implementation required the participation and support of many types of stakeholders at different government and administrative levels.
This chapter examines the initial set of activities that WSP undertook in collaboration with local stakeholders to develop the program and prepare for implementation.9 In Section A, we discuss the team that WSP assembled to implement TSSM and the organizational model it devised to ensure adequate engagement of relevant stakeholders. In Section B, we describe the TSSM team’s strategies for securing local government buy-in and establishing coordination mechanisms. Finally, in Section C we assess district resource allocations for effective and sustainable implementation.
We base our descriptions of implementation in this and subsequent chapters on observations during field visits to six districts in the summer and fall of 2010. As noted earlier, we conducted those visits more than three years after the program started, during a period when program activities were nearing completion. We relied on discussions with the TSSM team and stakeholders at the national, provincial, district, subdistrict, village, and hamlet levels, trying to draw on as many relevant stakeholders as possible who were familiar with the program. However, given the timing of the
9 In this chapter, we focus largely on the preparations for implementation of the CLTS component of the program.
Preparations for the sanitation marketing component are described in Chapter V.
Key Findings
TSSM adopted a tiered approach to program im plem entation. A central team secured high level buy in from the Ministry of Health (MoH) and the National Developm ent Planning Agency. At local levels, TSSM hired resource agencies with local knowledge to provide on site technical assistance to district governm ents.
Resource agencies were a suitable m echanism for providing hand on support. Greater alignm ent was needed term capacity building and scale up objectives.
TSSM initially anticipated that adopting a dem and responsive targeting approach would autom atically generate local buy in, a prerequisite for program success. Instead, selection of ham lets occurred as a top down process.
Sustained engagem ent of the bupat i and district political leadership proved to be a m ore effective lever for influencing buy in and ultim ately program success. Over tim e, TSSM developed ways to stimulate district/ bupat i com m itm ent, by fostering com petition am ong districts, such as collaborating with JawaPos to include a sanitation m etric of perform ance.
The TSSM m anual indicated the creation of coordination comm ittees as a key step and described the structure of needed comm ittees. Its lack of clarity on the responsibilities of the TSSM team , resource agencies, and districts in establishing and guiding these com m ittees may have resulted in such coordination comm ittees being rare.
Local district allocations for TSSM im plem entation, though critical for program success, were fairly low. This placed ex cessive burden on front line staff.
District allocation of funds m ay need to increase significantly once ex ternal TSSM supports ends or the program ex pands to poorer and m ore challenging areas.
study and the fact that there was some turnover in key staff, we also relied on a detailed implementation manual developed by TSSM to guide program execution, particularly to provide insights on the program’s intent (WSP n.d.).
Creating a tiered TSSM project team was a key step. TSSM project implementation team involved a network of staff and consultants responsible for engaging with governmental and sectoral partners at national, provincial, and local (subprovincial) levels. At the national level, WSP assembled a central TSSM team in Jakarta to generate national support for TSSM and design the technical assistance that the program would provide. This team was led by a task leader and consisted of a range of technical experts, including a training specialist (who received training from Dr. Kamal Kar, pioneer of the CLTS approach), a marketing specialist, and data collection specialists. The central team was responsible for securing high-level buy-in, designing TSSM activities, developing materials, and supervising and facilitating various program activities, including training and monitoring. WSP and the TSSM team leveraged previous efforts to pilot CLTS to build support and momentum for introducing and institutionalizing TSSM. (See Box III.1 for a history of CLTS piloting and TSSM adoption.) WSP identified MoH and the National Development Planning Agency as key partners given their roles in the adoption of sanitation and multisectoral programs. TSSM chose MoH as its primary implementing partner and worked closely with the Environmental Health division that headed the technical CLTS working group established in 2006.
Box III.1. Introducing Community Led Total Sanitation in Indonesia and Adopting TSSM
The groundwork for TSSM was laid when WSP first introduced CLTS in a pilot as part of the second Water and Sanitation for Low-Income Communities (WSLIC-2) program. WSP staff had been impressed by Bangladesh’s successful adoption of CLTS during a visit there. They organized a study tour to Bangladesh and India in 2004 to demonstrate CLTS’s effectiveness to high-level Indonesian officials from the Planning Agency and the Ministries of Health, Public Works, and Home Affairs. Health office staff from two districts also joined the tour. As a result of the visit, officials from Planning and MoH became eager to test the approach in WSLIC-2 villages in East Java starting in 2005. Rapid progress toward ODF attainment in several of these pilot locations built momentum for adopting the approach more widely in other villages and districts. It also started to convince initially skeptical stakeholders that a nonsubsidy approach could work. By late 2006, a technical working group on CLTS was established at MoH’s Environmental Health division with the express purpose of developing an operational strategy for scaling up CLTS nationwide. A similar study visit in 2005 to Vietnam to observe private sector development for improving sanitation supply built support for experimenting with the introduction of a sanitation marketing component (Mukherjee and Shatifan 2009).
After TSSM began, WSP expanded its efforts to create support for TSSM and generate a strong enabling environment. It worked closely with MoH, as well as with a range of stakeholders, including MoH’s Central Working Group on CLTS and national and district sanitation working groups to stimulate policy dialogues on sanitation. MoH led these discussions and focused them on developing and finalizing a strategy document. This strategy drew on the previous sanitation policy (National Policy for Development of Community-Based Water Supply and Environmental Sanitation, adopted in 2003), past experience with sanitation programs, and learning from CLTS implementation. WSP incorporated lessons learned from challenges faced during CLTS replication in pilot districts in WSLIC-2 to make the case for adding additional strategies to strengthen the enabling environment and sanitation supply networks. This generated support for the holistic TSSM program among working group participants. It ultimately culminated in the issuance of the Ministerial Decree and Strategy for Community-Based Total Sanitation in 2008. This strategy made CLTS a central pillar for generating community demand for improved sanitation, and included a focus on improving supply and generating institutionalization (Mukherjee and Shatifan 2009).