Environmentalism with Indonesian National Army: urban revitalization of the Citarum River in Karawang Regency, Indonesia

Abstract

This study aimed to examine the involvement of the Indonesian National Armed Forces (TNI) in the revitalization of the Citarum River through Military Operations Other Than War (OMSP) in Citarum Harum Program in Karawang Regency. A qualitative method was used with primary data obtained through direct observation, in-depth interviews, and secondary data from relevant literature and documents. Subsequently, the data were analyzed using Nvivo 12 Pro. The results of the research show that the substance of the policy content in Presidential Regulation of the Republic of Indonesia Number 15 of 2018 is very clear in the management of the Citaram River by involving the TN. The involvement of the Indonesian Army in the Citarum Harum Program had a significant impact on its success. The TNI has been able to optimize active participation in community and industrial empowerment through OMSP. In addition, their commitment and determination towards total revitalization has increased public and industrial awareness and compliance. The strength of this research lies in the approach to handling the Citarum River problem, through the Citarum Harum program. This study contributes to being used as material by the government and society in handling other environmental issues. The success of the Citarum Harum Program has contributed to the improvement of the Citarum River which can be used as a source of irrigation, hydroelectric power generation and tourism.

Keywords:

• Indonesian national armed force (TNI)
• Citarum River
• Citarum Harum project
• river revitalization
• Karawang regency

REVIEWING EDITOR:

• Michael Hardman, University of Salford, UK

SUBJECTS:

• Development Studies
• Urban Development
• Regional Development
• Sustainable Development
• Hazards & Disasters

1. Introduction

Water is a fundamental source of life for all living things (Erwin, 2011; McIntyre-Mills et al., 2023; Robert, 2012; Sunaryo et al., 2007). Watersheds (DAS) containing water are complex ecosystems that require coordinated and sustainable management (Asdak, 2007; Abdillah, 2023; Efendi, 2014; Kerr, 2007; Rustiadi et al., 2009; Seyhan, 1977). This is because the components interact and depend on each other from the upstream to downstream areas, and from the top of the mountain to the sea. Therefore, maintaining watersheds is a significant responsibility (Kartodihardjo et al., 2004).

River water is important for watersheds as it is a strategic and essential gift that affects the lives of people in a country. Water is a natural resource that has a very high economic value, specifically from a biological and cultural point of view. Regardless of cultural level, water is an indispensable aspect of human life. Moreover, there is a tendency that the higher the human culture, the greater the dependency on water, as needs increase correspondingly (Ilham & Yustianto, 2024; McIntyre-Mills et al., 2023; Rusliadi & Aina, 2024).

The current reality is that human activities greatly contribute to river pollution and damage. These conditions cause changes in the hydrological conditions of the watershed, resulting in increased erosion and sedimentation, decreased land productivity, and accelerated land degradation. Therefore, humans must play an active role in improving the physical condition and function of the watershed ecosystem (Directorate General of RPLS, 2009; McIntyre-Mills et al., 2023).

Referring to the study location, the significant pollution and damage that occurred in the Citarum watershed can be attributed to substantial domestic and industrial activities. The waste disposed of in this watershed is 3512.2 tons/day originating from 8 (eight) regencies/cities. This results in huge losses to health, economy, social, ecosystem, and environmental resources, which threatens the achievement of the objectives of environmental protection and management (Pratama & Zubaidah, 2023; Satgas DAS CITARUM, 2019).

The upstream Citarum River has experienced a decline in water quality, partly due to heavy metals entering from the industrial waste. Cadmium is a dangerous heavy metal regulated by PP No. Based on previous studies, the CD values of Dayeuhkolot, Cisirung, and Nanjung were 0.006 mg/L, which is below the PP 82 quality standard of 2001, set at 0.01 mg/L. Meanwhile, the physical and chemical parameters studied were pH, temperature, DO, TSS, and turbidity. Among these parameters, only DO in Dayeuhkolot and Cisirung were found to exceed the quality standards. However, the pH and the pollution generated in all three locations were not properly managed (Sari et al., 2020; Satgas DAS CITARUM, 2019).

As a city industry, the Citarum watershed area in Karawang Regency, Indonesia, is experiencing pollution and damage. According to the data from the Department of Environment and Hygiene in the Regency, the generation of waste (household and similar waste) disposed of into Citarum River reached 9281 m³/d or a weight of 918 tons/day, consisting of 64% organic waste and 36% inorganic. The overall pollution due to domestic waste contributes 60% of the total pollution that occurs in the watershed. Meanwhile, the ratio of handled waste has only reached 41.35% or around 400 tons/day of total waste transported to the landfill (TPA). This situation is exacerbated by 32 companies whose waste disposal channels go directly into river bodies, and the 54 factories that discharge waste into Citarum tributaries (Ariño & De La Torre, 1998; Devi et al., 2023; Kurniawan et al., 2022).

The government’s efforts to revitalize the Citarum watershed through the Citarum Bergetar program and Citarum Bestari Program have failed. According to the Presidential Regulation of Indonesia Number 15 of 2018, concerning the Acceleration of Pollution Control and Damage to the Citarum River Basin, the government has involved the military institution (TNI) as the spearhead in the successful implementation of the Citarum watershed revitalization. The involvement of the military in government programs is based on Military Operations Other Than War (OMSP). According to law 34 of 2004 article 7 concerning the Indonesian National Armed Forces, soldiers are legally permitted to participate in OMSP. Therefore, their involvement to assist the regional government in the revitalization program does not violate the law.

Regarding the study position, there are several previous studies that discuss OMSP in Indonesia. For instance, explored OMSP in the context of disaster response and terrorism (Gindarsah & Negara, 2020; Kurniawan et al., 2022; Lesmana et al., 2022; Pratiwi, 2017; Putra & Lubis, 2022; Sandy & Umayasari, 2022; Sinaga, 2018; Smith et al., 2018; Susanto & Putri, 2019). However, it is very rare to find studies that focus on using OMSP to revitalize rivers by controlling pollution and damage. Indonesian National Armed Forces (TNI) are used as determinants of the success of previously failed government programs. This study is very important and has great novelty, as it aims to answer how OMSP can be employed in the revitalization of the Citarum.

1.1. Objectives

This study aimed to examine the involvement of the Indonesian National Armed Forces (TNI) in the revitalization of the Citarum River through Military Operations Other Than War (OMSP) in Citarum Harum Program in Karawang Regency. This study focuses to Implementing and TNI as the Driver of Success in Citarum Harum Program in Karawang Regency, Indonesia.

2. Material and methods

Based on the problems outlined, this study used qualitative-explorative methods with a study case approach (Creswell, 2014; Creswell & Poth, 2016). This method was selected as a means to understand, explore, and explain not only theoretically, but with facts related to the implementation of OMSP in the revitalization of the Citarum River of Citarum Harum Program in Indonesia.

2.1. Data collections

The study consisted of primary data obtained from in-depth interviews with a number of informants, and secondary data from a literature study (Creswell, 2014). The purposive sampling technique was used to determine the informants, which include (1) The Head of Karawang Regency, Indonesia Environmental and Hygiene Service, (2) The Head of Operational Staff of SDA 1 BBWS Citarum, (3) The Commander of Sector 17 Citarum Harum Task Force, (4) The General Manager of PT. Bukit Muria Jaya, (5) The General Manager of PT. Pupuk Kujang Cikampek, (6) The Head of Environmental Friendly Community Self-Help Group, and (7) Tiger Citarum Non-Governmental Organization. The reason for choosing the informant is because the person is considered to know best about what is problematic in the research case, or perhaps he is an authority so it will make it easier for the researcher to explore the object/social situation being studied.

2.2. Data analysis

The data were analyzed through data collection, reduction, display, verification, and confirmation of conclusions (Creswell, 2014). In addition, the credibility check was carried out using the triangulation technique (Patton et al., 2006).

This study employed an analysis technique of data collection that is divided into three stages, namely Import Data, Processing Data, and Categorize Data (Figure 1). This is followed by the observation of data and interview of transcripts which is divided into five stages, namely Categorize Data, Coding, Matrix Coding Query, Data Visualization, and Results Preview. The last step is documentation, which is divided into four stages, namely Coding, Data analysis, Creating Project Maps, and Data Visualization. These steps were aided by Nvivo 12 Pro, a qualitative data analysis tool (Woolf & Silver, 2017), to obtain the best findings through matrix coding analysis. This technique was chosen because it is able to identify, solve, and structure in a more comprehensive qualitative way the various data sources available, so that researchers can find in-depth conclusions and findings.

Figure 1. Data collection and analysis techniques with NVivo 12 Pro.

Sources: processed by researchers, 2022.

3. Results and discussion

3.1. Substance and policy: Feasibility of implementing the Citarum Harum Program

The Citarum River has been reported as the dirtiest river in the world. As a result, the Indonesian government has issued a policy to re-do a total revitalization. This is because the Citarum is a strategic river in Indonesia and serves as a source of life for 35 million people. It spans 297 km across 13 regencies/cities, providing raw water and 80% of the drinking water for the people of Jakarta. Moreover, it serves as a source of irrigation water for 420,000 hectares of agricultural land and powers a Hydroelectric Power Plant (PLTA) with 1888 Mw of electricity for the Java and Bali Islands (Anwar et al., 2019).

The urgency of the Citarum Harum program, which aims to revitalize the entire watershed, is crucial due to the failure of the previous government programs (Satgas DAS Citarum, 2019; Diana, 2021; Chandra et al., 2019). The ‘Citarum Vibrating’ program was launched between 2000 and 2003 and re-launched under the name ‘Citarum Bestari’ in 2013. Although the former focused on controlling conservation recovery and community empowerment, it was considered inadequate in overcoming the pollution of the river. Recognizing the strategic position of the Citarum River, the central government, in 2008, approved a USD 500 million or around Rp 6.7 trillion loan offer from the Asian Development Bank (ADB) to restore its condition. The loan was intended for a 15-year program, but currently, Citarum’s condition has not improved, causing increasing concern (Chandra et al., 2019; Diana, 2021; Satgas DAS Citarum, 2019).

• The Citarum Bestari Program was introduced by the Governor of West Java, Ahmad Heryawan, in 2013. The program was officially launched with a budget of approximately Rp. 80 billion through West Java Governor Regulation Number 75 of 2015. A new format for the program called the final volume or ‘Pamungkas Volume’ was redesigned in 2016. The target of the Citarum Bestari Program in 2018 was to make the river safe for direct consumption. One of the main objectives was to establish an Ecovillage or environmentally cultured village along the river. These ecovillages are run by groups of people in each village who are environmentally aware, trained, and educated to protect the environment, specifically the cleanliness of the river. Despite the efforts, the condition of the Citarum water, as of 2018, has not improved, instead, it has become increasingly polluted, making it unsafe for consumption.

• After 10 years of failed revitalization programs, the deteriorating condition of the watershed prompted the government to issue Presidential Regulation of Indonesia Number 15 of 2018 concerning the Acceleration of Pollution Control and Damage Citarum River Basin, which mandates the total restoration of the Citarum River. The regulatory substance of the Citarum Harum program is intended to increase the effectiveness of the implementation of pollution and damage control programs in the Citarum watershed. This is more comprehensive in dealing with watershed pollution and damage compared to the Citarum Bergitar and Citarum Bestari programs which do not involve cross-sectoral roles, including private and community participation. The substance of the Citarum River policy is based on addressing watershed pollution or damage, as well as restoring its functions. In line with these policy directions, a strategy has been developed to overcome and control damage problems (Chandra et al., 2019; Diana, 2021; Malik et al., 2021; Satgas DAS Citarum, 2019). To achieve this, it is necessary to control pollution from various pollutant sources, such as industrial, livestock, and fishery waste, as well as domestic wastewater and solid waste. In addition, measures to reduce erosion and control water resources are required beyond the Citarum watershed (Chandra et al., 2019; Diana, 2021; Satgas DAS Citarum, 2019).

• The feasibility of the policy in the Citarum Harum program can be seen from the following strategy to control sources of pollution and damage: (1) Reducing sedimentation in the watershed by handling critical land erosion (2) Managing industrial, livestock, domestic, and solid waste (3) Supervising, enforcing laws, and controlling the use of space (4) Improving water resources management (5) Conducting education and outreach programs for industries, educational institutions, and the communities in the watershed (Chandra et al., 2019; Diana, 2021; Satgas DAS Citarum, 2019).

• The feasibility of the Citarum Harum program can be seen from its strategy for controlling pollution and damage to the watershed, which involves the participation of various related parties. These parties include the Indonesian National Armed Forces (TNI), the Indonesian National Police (POLRI), the High Prosecutor’s Office, as well as the Ministries and Institutions with the support of the private sector and Public (Task Force, 2019). This relates to the characteristics of a watershed, which is a complex ecosystem consisting of ecological, social, and economic systems, or a combination of two or more systems (Kartodihardjo et al., 2004; Rustiadi et al., 2009).

• Apart from the implementation aspect, the feasibility of policy substance plays a large role in the success of the government’s programs. The failure of the Citarum Bestari and Citarum programs is attributed to the minimal cross-sectoral involvement, weak awareness and participation of the community (its treatment as an object, rather than a subject), low involvement of the private sector, and poor commitment to law enforcement. The presidential Regulation of Indonesia Number 15 of 2018 concerning the Acceleration of Pollution Control and Damage to the Citarum River Basin, substantially promotes various parties to take part in the total restoration of the national strategic river.

• The involvement of various institutions is a manifestation of the seriousness of the government to carry out a total revitalization. Broadly speaking, this condition is manifested by the involvement of various ministries and institutions, namely (1) the Ministry of Religion, (2) the Ministry of Finance, (3) the Ministry of Research, Technology, and Higher Education, (4) the Ministry of Health, (5) the Ministry of Industry (6) the Ministry of Energy and Mineral Resources, (7) the Ministry of Public Works and Public Housing, (8) the Ministry of Environment and Forestry, (9) the Ministry of Agrarian and Spatial Planning/Head of National Land Agency, (10) the Ministry of National Development Planning, (11) the Ministry of State-Owned Enterprises, (12) the Attorney General of the Republic of Indonesia, (13) the Commander of the Indonesian National Armed Forces, (14) the Chief of the State Police for Indonesia (Task Force, 2019).

• The policy of the program aims to strengthen previous efforts by integrating agencies, stakeholders, as well as Central and Regional (Provincial, Regency/City) authorities. The program emphasizes the involvement of all parties, including the Indonesian National Armed Forces (TNI) to improve the effectiveness and conditioning of the community, village officials, and business or industrial actors. Meanwhile, the regional apparatus/technical services at both the provincial and city districts are responsible for initiating programs and activities to be implemented in the Citarum watershed.

The analysis in Figure 2 shows that the Indonesian National Army played a significant role in revitalizing the Citarum Harum, which is linked to 13 districts and irrigation canals connecting 420,000 community agricultural lands. The local community also made a substantial contribution to this effort, despite the lack of awareness and participation, which has become an obstacle to the river’s revitalization. One of the main challenges is the government’s tendency to treat the community as an object, rather than a subject. This has hindered the successful implementation of various government programs, including the Citarum Bestari Program, which was introduced by the West Java Governor for the total revitalization of the Citarum river. Although efforts were made on recovery control, conservation, and empowerment, the fate of the river has remained the same. The condition was even worse by 2018 despite the loan from the Asian Development Bank (ADB), and the support of the community as well as West Java Governor Regulation Number 75 of 2015. This result is supported by the water quality of Citarum River, which ranges from 12,683 to 31,503 during the dry season, 21,231 to 33,127 during the rainy season, and 12,134 to 28,748 during the wet years (Marselina et al., 2022; Siswanto & Francés, 2019).

Figure 2. Linkage analysis of Citarum Harum Program Implementation Feasibility Information Network Indicators.

Source: Nvivo 12 pro analysis results, 2022.

3.2. Military operations other than war: TNI as the driver of success

The involvement of the Indonesian National Armed Forces (TNI) in the revitalization of the Citarum watershed is part of the implementation of the tasks of OMSP as regulated in the Law of the Republic of Indonesia Number 34 of 2004 concerning TNI. TNI involvement is aimed at ensuring success by streamlining and encouraging the efficiency of the program. The use of their power in implementing OMSP is carried out in the interest of national defense and in the context of supporting national interests, while adhering to statutory regulations.

In addition, TNI became the leading sector in the implementation of the Citarum Harum Program, as reported in Karawang Regency. TNI involvement in the revitalization process has a crucial function. This study revealed that TNI, through the Citarum Harum Task Force, routinely carries out socialization and education by providing public awareness about the impact of pollution and damage to the Citarum watershed. These activities included regular provision of warning information to the public in different locations, consistently conducting river patrols 3 times a day, 90 times a month, and 1080 times a year. This was carried out in collaboration with the Village Government, and related agencies/services.

TNI in Karawang Regency is divided into four sectors, namely sectors 16, 17, 18, and 19, each of which is led by a Sector Commander with the rank of Colonel. TNI cooperates with various stakeholders and agencies in the regency to lead the revitalization. Moreover, it is expected to coordinate and collaborate effectively in efforts to handle waste and restore ecosystems. This is because communication and coordination between institutions in the previous revitalization program were very weak and tended to be very sectoral. Therefore, communication and trust are crucial aspects of cooperation. In line with this, the purpose of the collaboration is based on trust between actors (Emerson et al., 2012; Gulati, 1995; Ring & Ven, 1994)

TNI, in collaboration with Karawang Regency, Environmental and Hygiene Service, Health Service, as well as private sector companies, such as PT. Bukit Muria Jaya and PT. Cikampek Kujang Fertilizer, conducted socialization and education on clean and healthy living behavior (PHBS). This is necessary because several people still consider rivers as giant trash bins and the final destination of all kinds of dirt (Devi et al., 2023; Fuady et al., 2020). In reality, 918 tons of waste are dumped into the Citarum Karawang watershed per day. Through socialization and education, it is hoped that knowledge will be transformed to Karawang people, leading to a change in behavior towards loving the environment. The implementation of the TNI program in collaboration with the government, seeks to promote community participation as the main determinant of success.

The rise in the culture of dumping garbage into rivers and open defecation (BABS) has become a classic problem in the Citarum watershed. This condition is evident from the practice of BABS, which is as high as 82% (Ministry of Health, 2019). The use of OMSP in dealing with pollution and damage to the watershed in this context is one of the ways to stop this bad habit. TNI has consistently built public latrines or MCK (bathing, washing, and latrines) and dismantled illegal latrines in the Citarum river. By 2022, the number of MCKs will reach 678, and an additional of 1700 are expected to be completed by 2025, with all construction involving the active participation of the surrounding community.

The realization of OMSP is carried out with innovations in overcoming pollution and damage to the Citarum watershed in accordance with the development of science and technology. The involvement of TNI in Karawang Regency has simultaneously fostered the transformation of knowledge and public awareness of the importance of rivers for life. This transformation of knowledge aligns with the efforts to revitalize the Citarum watershed by utilizing river banks for recreation, education, and sports as well as building community food security. In addition to using water hyacinth plants as a source of biogas for household needs, the transformation of knowledge based on community empowerment is also carried out by utilizing unused land (unproductive land) along the banks of the Citarum. This involves collaboration between DLHK, PJT II, industry, and the community. Cooperation can enhance trust through the sharing of information and knowledge, demonstrating competence, goodwill, and following up on activities (Ariño & De La Torre, 1998; Devi et al., 2023).

The magnitude of the effort to empower the community and the firmness of law enforcement are distinguished by the involvement of the TNI in the Citarum Harum Program. The presence of the Armed Forces has successfully instilled fear in the community, which previously contributed to pollution by dumping garbage into the river. According to the data from the Department of Environment and Hygiene in Karawang Regency, the generation and disposal of waste (household and similar waste) into the Citarum River previously reached 9281 m³/day or a weight of 918 tons/day, with 64% comprising organic and 36% inorganic. The overall pollution due to domestic waste is 60% of the total breakdown in Citarum. Meanwhile, the ratio of waste handled has only reached 41.35% or around 400 tons/day of the total waste transported to the landfill (TPA).

Similar conditions were encountered with the compliance of the company/industry. TNI involvement through OMSP has led to industries cleaning up and orderly managing their industrial waste more effectively. This is because the TNI consistently conducts river patrols 3 times a day, inspects companies, and takes firm action. In cases where commitments are violated, they do not hesitate to punish the industry by closing the out-fall sewerage. As a result of their efforts, 1286 factories are expected to repair their WWTPs by 2021 (Ariño & De La Torre, 1998; Devi et al., 2023).

Intensive relationships through communication, socialization, and public order as well as industrial parties has been crucial in the successful progress of OMSP by TNI under the Citarum Harum program. The monitoring results obtained from telemetry installed at various points along the Citarum River showed a score of minus 10, indicating the status of ‘lightly polluted’, with Biochemical Oxygen Demand (BOD) levels of 9.25 mg/liter, Chemical Oxygen Demand (COD) level of 145.12 mg/liter, and a water temperature of 29.3 °C (Ariño & De La Torre, 1998; Devi et al., 2023).

The enforcement of strict measures and punishments is required for some government programs. Appropriate law enforcement efforts can promote public order, alongside efforts to raise public and industry awareness by program organizers. According to Wang et al. (2023), punishment is a means of directing behavior to conform to generally accepted behavior. It is intended to make offenders aware of the consequences of their actions and create fear, deterring them from committing such acts in the future. In order to achieve the goal of controlling watershed pollution and damage through the Citarum Harum program, it is crucial to change the community behavior. The community is one of the main sources of pollution and damage to the Citarum watershed in Karawang Regency, as they often disregard the value of water as the source of life by using rivers as a dumping ground for waste disposal.

Figure 3 shows the activities of the actors in the revitalization of Citarum Harum. TNI was found to have contributed the most, accounting for 34.62%, followed by the people of Jakarta and West Java at 26.92%, the local government at 15.38%, and the industry at 15.38%. The Indonesian central government and the Citarum Harum Task Force each contributed 3.85%. This analysis highlighted the crucial role of TNI in supporting Citarum Harum program, not only in its military capacity, but also in revitalizing the river as a source of raw water, irrigation, and drinking water. In line with the above analysis, several studies also identified the gap between the One Order approach and the Presidential Regulation, and suggested what should be done to rejuvenate the river. The industrial and household waste discharged into the river has further exacerbated the damage. The water recedes greatly during the dry season, while sedimentation reduces the capacity of rivers to flow, causing major flooding in the rainy season. Therefore, it is not surprising that the Citarum is considered one of the most polluted rivers in the world (Budiarso et al., 2022; Budiarso et al., 2021; Chandra et al., 2019).

Figure 3. Analysis of actor activities in the revitalization of Citarum Harum.

Source: Nvivo 12 pro analysis results, 2022.

3.3. Collaborative action in the success of Citarum River revitalization

In order to successfully revitalize the Citarum River, the government needs to measure the success of collaboration through a stage of analysis based on five main indicators. These indicators include Face to face dialogue as the core of collaboration, Success in building trust between actors, Commitment to the process, Building mutual understanding, Temporary achievement of collaboration. By focusing on these indicators, the success of the revitalization can be measured.

Collaborative government is awakened from the face-to-face dialogue. This is a consensus-oriented process that allows actors to identify opportunities for mutual benefit (Koschmann et al. 2012). It is a way of breaking down suspicions between actors in building collaboration and preventing the exploration of mutual benefits in the early stages of a collaboration (Ansell & Gash, 2007; Booher & Innes, 2002).

TNI involvement in the Citarum Harum program has made a significant difference compared to the previous failed attempts. The results showed that TNI emerged as the main driving (leading) sector in ensuring the optimal revitalization of the watershed. This can be attributed to the magnitude of the authority and resources possessed by the Armed Forces, including their ability to build intensive communication between actors.

The basis for collaboration is built on face-to-face dialogue. Despite the formation of a face-to-face forum by the government through the Karawang Environment and Hygiene Service called the Citarum Watershed Coordination Forum, the industry and the community have not been involved. Collaborative governance is the government’s need to formalize the involvement of non-government parties with the aim of reaching a consensus (Ansell & Gash, 2007; Abdillah et al., 2022). Besides, watershed management and water pollution control should be carried out wisely (Hendrawan, 2005). The percentage of actor involvement in the ‘face-to-face dialogue’ indicator highlights the crucial role of TNI in the collaborative process to build consensus.

The encouragement and participation of TNI received positive feedback. This is evidenced by the presence of the industry and the community called the Citarum DAS coordination forum, which is held monthly. The success of the TNI to establish intense communication with stakeholders has played a vital role in building trust, mutual respect, mutual understanding, and commitment to government collaboration.

Building trust with every related party is crucial since communication and trust are the main components of collaboration (Emerson et al., 2012). Ring and Ven (1994) and Gulati (1995) defined the purpose of collaboration on the basis of trust between actors. Poor trust has been identified as a cause of failure in government programs (Das & Teng, 2001). This includes the failure to revitalize the Citarum watershed, which can be attributed to the weak involvement of other non-government actors. In order to build trust, TNI and the Government have provided information, program socialization, education, and formed community groups through the revitalization collaboration. An absolute prerequisite for successful collaboration is to build ongoing trust (Budiarso et al., 2021; Budiarso et al., 2022; Huxham & Vangen, 2000; Ring & Ven, 1994).

Mutual trust can be regarded as the core of collaboration (Chen & Graddy, 2005). TNI involvement in collaboration with the government has had a significant impact on building industry and public trust. The perception of the non-government stakeholders is that TNI’s presence will bring about positive changes in the implementation of government programs, resulting in close cooperation and compliance with the existing regulations. The community and the industrial sector have shown great enthusiasm and motivation to collaborate. This is in line with the community’s role as the implementing subject in the successful revitalization of the Citarum River.

The positive perception of TNI among the public has a crucial role in building trust and compliance with the Citarum Harum program. This is directly proportional to the increasing confidence in government programs. The public’s trust in TNI has grown stronger due to their direct involvement in handling of factory waste and garbage, managing critical land, overseeing water resources, and organizing floating net cages (KJA). In addition, several creative activities, such as nursery building, demonstration plots for food security on the banks of the Citarum watershed, and the use of riverbanks as recreational, educational, as well as sports facilities actively collaborate with DLHK (Department of Environment and Hygiene), PJT II, industry, and the community. Such cooperation facilitates trust by sharing information and knowledge, demonstrating competence and goodwill, as well as following up on activities. On the other hand, collaboration failure occurs when actions weaken trust (Ariño & De La Torre, 1998; Budiarso et al., 2021; Budiarso et al., 2022).

Trust is required in establishing cooperation with a new party, specifically since they have not worked together before. It takes time and special attention for new people or parties to be able to trust each other and work together in a program. It is crucial to build trust as soon as possible once the collaboration process begins. In order to achieve this, leaders who recognize the importance of trusting individuals or groups are essential (McLaren et al., 2019; Widianingsih et al. 2023). However, conflict of interest can arise, such as conflicts in environmental law enforcement and economic interests, or conflicts between community needs and the agency’s duties in watershed conservation.

Commitment is a crucial factor in preventing the collaboration process. It strongly influences the success of collaboration and is closely related to the motivation to participate (Schöttle et al., 2014). Once consensus is reached, trust is earned, hence, collaborators should ideally have a shared commitment (Ansell & Gash, 2007; Bardach, 1998; Bryson et al., 2015). Each actor in the Citarum Watershed Coordination forum is required to have a commitment to their respective capacities. Sectoral egos and the magnitude of conflicts of interest are the challenges faced in overcoming the watershed comprehensively (Blomquist & Schlager, 2005; Budiarso et al., 2022).

TNI demonstrates its commitment to controlling pollution and damage to the Citarum watershed through various actions. This includes direct socialization with each company, which involved as many as 97 company patrols and 3024 visits to residents’ homes in a year. This was carried out to promote business actors and the community to avoid polluting the environment by constructing WWTPs. As a control effort, TNI conducts river patrols 3 times a day, 90 times a month, and consistently 1090 times a year. When an industry violates the commitment, they take firm action by closing the out-fall channel until the specified waste disposal standards are met.

TNI commitment to collaborating with the government also aims to change people behavior. It is unfortunate that many people still view rivers as giant trash bins and the final destination of all kinds of dirt (Fuady et al., 2020). In reality, 918 tons of waste are dumped into the Citarum Karawang watershed per day (DLHK Karawang Regency, Indonesia, 2020). This is further exacerbated by the number of illegal latrines along the watershed, as well as the high practice of open defecation, which is as high as 82% (Ministry of Health, 2019).

In order to achieve the program’s aim of controlling watershed pollution, effective communication and appreciation are key. The parties involved should engage in conversations over coffee or meals to share information and tasks. Moreover, the government should guarantee the necessary facilities and infrastructure for stakeholders to support the program properly and optimally. It is also essential to instill a culture of cleanliness and sustainable river management within the community.

A shared understanding can unite perceptions of the substance and purpose of collaboration. This involves shared vision and mission, intentions, ideology, or direction, as well as alignment of core values, clear and common goals (Ansell & Gash, 2007; Emerson et al., 2012). The synergy between TNI, the Environment and Hygiene Service, the Health Office, PJT II, the industry, and the community illustrates the understanding of the total revitalization process.

The consensus reached through the Citarum Watershed Coordination forum reflects the understanding of the problems and substance of the Citarum Harum program. Mutual understanding can be in the form of an agreement in defining a problem or finding a common solution (Ansell & Gash, 2007). A shared understanding can be formed through long and continuous socialization by the TNI and Karawang Regency Government. Previous studies showed that all actors in the collaboration understand the intent and substance of the program. Accordingly, collaborative governance is intended to unite parties in a common understanding and goals (Budiarso et al., 2022; Harley & Blismas, 2010).

The formulation of clear goals are crucial for effective collaboration (Donahue & Zeckhauser, 2011). The clarity of the substance of the Presidential Regulation (Perpres) of Indonesia Number 15 of 2018 concerning the Acceleration of Pollution Control and Damage to the Citarum River Basin, can simultaneously be understood by all stakeholders. The presence of TNI, in its realization, promotes a common understanding of the objectives through decisive actions, such as closing company outfalls, forcibly demolishing illegal buildings on the banks of the watershed, and eradicating thuggery acts. This intervention also involves the private sector and the community. Although the collaboration provides equality for every actor, the government has more authority to regulate (Raharja, 2010). However, the presence of TNI has dominated the effectiveness of collaboration. This demonstrated by the government, where the Karawang Environmental and Hygiene Service, the Karawang Regency Health Office, and PJT II always agree with the TNI’s actions.

This has become a logical consequence of the Citarum Harum program. A responsible individual in this program is committed to setting a good example to the community in maintaining the Citarum River. In addition to the stakeholders who were given an understanding, the task force team also focused on educating the residents living along the riverbanks to cooperate and take care of each other, regardless of the presence of the task force. This ensures that even after the end of the program, the residents’ understanding of the importance of preserving the river is maintained and the mindset to protect it has been formed.

Collaboration can be stated to be concrete when there is a possibility of success from the collaboration process, manifested in the presence of small wins, the development of strategic plans, as well as the facts and findings produced together (Ansell & Gash, 2007). TNI involvement through OMSP has significantly increased the trust and commitment of all actors, in addition to creating an understanding that is in line with the objectives of the Citarum Harum program. This realization is evident from the series of concrete actions that are consistently and continuously carried out by the TNI since 2019.

Even though it is not a final achievement, the agreement on the shared goals of the actors illustrates the progress of success by setting aside sectoral egos in absolute terms. This is because agreements and commitments are a crucial part of the challenges that determine the outcome of collaboration (Abdillah et al., 2023; Fatmawati et al., 2022; Prastio et al., 2019). The temporary achievement of the TNI achievement has resulted in minimal conflicts of interest in revitalizing the Citarum watershed. For example, the handling of critical land in the Citarum River previously covered 77,037.36 Ha, but currently, it has been reduced to only 16,637.36 Ha, surpassing the target set every year.

The changes in the community’s paradigm towards rivers, the success of Stop Opening Open Defecation (BABS), the consistent building of communal toilets, and the dismantling illegal toilets are the achievements of the Citarum Harum program collaboration. TNI involvement has had a significant impact on the program’s objectives. This is evidenced by the completion of 678 MCK in 2022 out of the targeted 1700 to be completed by 2025. In other words, more than 40% has been achieved, even in Kabupaten Karawang. Likewise, the consistent handling of industrial waste through river patrols 3 times a day, and regular inspections of companies and firm actions had an impact on industrial compliance. It was recorded that in 2021 there were 1286 factories repairing their WWTPs. This reflects the percentage of actors’ involvement in the ‘Intermediate Outcomes’ indicator, where TNI plays an important role in the collaboration process that formed a paradigm shift in the Karawang community and rogue industry.

The optimal collaboration by various parties is the key factor behind the successful outcome of the Citarum Fragrant program. This collaborative process has positively impacted the water quality of the Citarum River. The involvement of the community in the program approach has resulted in a positive change. This is because one of the criteria for effective collaboration is the activeness of actors and resources characterized by the willingness to invest their resources in the joint process.

According to Figure 4, the fourth indicator is the success in building trust between actors (Trust Building), with the community being the most heavily involved at 37.50%, and the industry being the lowest at 20.00%. The last indicator is the temporary achievements of collaboration (Intermediate Outcomes), with TNI contributing the most at 6.67%. These percentages demonstrate the importance of collaboration and cooperation between all actors for the success of the Citarum Harum program. This analysis is highly relevant to other studies, stating that the application of pollution control policies in the Citarum watershed, Bandung Regency, Indonesia, is not optimal, due to the incompleteness of several dimensions of policy implementation, such as organizational dimensions and structure, authority, main tasks, as well as functions (Diana, 2021; Fatmawati et al., 2022; Sakti & Afiyah, 2020).

Figure 4. Percentage of actors’ collaborative actions in the fragrant Citarum program.

Source: processed through Nvivo 12 Pro, 2022.

3.4. Recommendations and limitations

We recommend several local institutions such as NGOs & environmental activists in the management of the Ciraum Fragrant River in Karawang Regency, so that when the Ciraum Fragrant River program ends and the military withdraws from the Citarum River, the community can slowly take on experts in managing the Ciraum Fragrant River, while control and evaluation will still be carried out by the military. which previously managed the Citrarum River in Karawang Regency, Indonesia. The limitation of this research is that it only examines 1 district out of 10 districts & 2 cities which are flowed by the Citarum River. The findings and suggestions in this research are not applicable in other places (other districts/cities).

4. Conclusions

The Citarum Harum program will continue for the next 2 years. During the last 5 years, the success of implementing the Ciatrum Program has not been achieved, solely due to the involvement of the TNI which is able to optimize active participation in community and industry empowerment through OMSP. Bearing in mind, Presidential Regulation No. 15 of 2018 Chapter 4 Concerning Ministry/Institution Support Article 12 explains in detail the support that must be provided by 17 Ministries, the Attorney General of the Republic of Indonesia, the Commander of the TNI, the Commander of the TNI and the Commander of the TNI. The Indonesian National Police (POLRI) and the Head of the Financial and Development Supervisory Agency (Budiarso et al., 2021; Budiarso et al., 2022; Devi et al., 2023).

In implementing the Citarum Harum Program, the implementation of one-command leadership, where the Governor of West Java is the SATGAS Commander with an organizational structure and Action Plan that includes (Budiarso et al., 2021; Budiarso et al., 2022; Devi et al., 2023); (a) Divided into 22 Sectors led by a Sector Commander with the position of Colonel/Middle Officer of the Indonesian National Armed Forces (TNI as part of the OMSP) as Coordinator; (b) The Socialization Team consisting of TNI, POLRI, Legal Experts, Scholars, Sociologists, Cultural Figures, Artists, Activists, Volunteers, Students, Academics, Experts, Extension Workers and Citizen Journalism; (c) The AKSI team started with the duties and functions of law enforcement, relocating residents upstream of the Citarum River, changing the profession of forest encroachers, floating net cage workers, building public baths with shared washing and toilet facilities, carrying out processing & processing of livestock manure, destruction of building installation waste, treatment of integrated wastewater treatment plants, reforestation of forests and disposal of sedimentation, etc.

This study successfully addressed how the success of the policy program is determined by the substance of the policy content, which ideally includes the involvement of related parties, the clarity of objectives and strategies used, as well as the achievement of results as a basis for quality policies. Although this study is limited to Karawang Regency, it has successfully explained the actual substance of the policy content as the basis of success, as well as the role of OMSP in mitigating pollution and damage to the Citarum watershed. TNI has been able to optimize active participation in community empowerment and industry through OMSP. Moreover, their commitment and firmness toward total revitalization have fostered public and industry awareness and compliance.

The strength of this study lies in its approach to handling the Citarum River problems, through the Citarum Harum program. This program offers, to a certain extent, a more representative perspective than what is typically available to local communities, and focuses on reducing puddles or flooding in the community, the amount of waste dumped into the rivers, and encouraging the industrial players to manage their waste. As a result, the problem of waste has decreased. This study has several limitations, with the first being the limitation of observations to conditions, and the reliance on self-reported survey from informants. Even though the sample size of the interview was large and statistically significant, it was not completely random, therefore, the findings should be generalized with caution. Secondly, while there are many studies on environmental issues, such as mining waste with high and low contexts, there is a need for scholars to address the handling of problems related to the Citarum River.

Authors contributions

Conceptualization, W.W., N.A.D., R.W.S.S., N.I.S. and A.A.; methodology, W.W., & A.A.; software, A.A.; validation, N.A.D., R.W.S.S., N.I.S. and A.F.P.; formal analysis, W.W., A.F.P. & A.A; investigation, W.W., N.A.D., R.W.S.S., A.A. and A.F.P; resources, W.W., A.A. and A.F.P.; data curation, W.W., A.A. and A.F.P.; writing—original draft preparation, W.W., A.A. and A.F.P.; writing—review and editing, W.W., A.A. and A.F.P.; visualization, W.W., A.A. and A.F.P.; supervision, N.A.D., R.W.S.S. and N.I. S.; project administration, N.A.D., R.W.S.S. and N.I.S.; funding acquisition, N.A.D., N.I.S. and R.W.S.S. All authors have read and agreed to the published version of the manuscript.

Ethics statement

This study was conducted following the recommendations of the Faculty of Social and Political Sciences, Universitas Padjadjaran, Indonesia.

Acknowledgments

The authors are also grateful to Padjadjaran University for the support and sponsorship provided.

Disclosure statement

No potential conflict of interest was reported by the author(s).

Data availability statement

The data used in supporting the findings are included within the article.

Additional information

Notes on contributors

Widodo

Widodo is a Graduate Program in Government Science, Faculty of Social and Political Sciences, Padjadjaran University, Indonesia. He is also a Lecturer at Department of Defense Administration, Akademi Militer Magelang, Indonesia. His research relates to Collaborative Governance, Local Government, Public Policy Leadership, and Disaster Management. Email: [email protected]

Nandang Alamsah Deliarnoor

Nandang Alamsah Deliarnoor is a Lecturer at the Government Science Department, Faculty of Social and Political Sciences, Padjadjaran University, Indonesia. His research relates to Local Government, Public Policy Leadership, and Law. Email: [email protected]

R. Widya Setiabudi Sumadinata

R. Widya Setiabudi Sumadinata is a Lecturer at the Department of International Relations, Faculty of Social and Political Sciences, Padjadjaran University, Indonesia. His research is related to Dynamic Systems, cultural paradiplomacy, Migrant Workers and human development. Email: [email protected]

Novie Indrawati Sagita

Novie Indrawati Sagita is a Lecturer at the Government Science Department, Faculty of Social and Political Sciences, Padjadjaran University, Indonesia. Her research relates to Local Government, Public Policy Leadership, and Disaster Management. Email: [email protected]

Abdillah

Abdillah Abdillah is a Doctoral Student and Assistant Professor in the Administrative Sciences Programme, Faculty of Social and Political Sciences, Universitas Padjadjaran, Bandung, Indonesia. His research interests relate to Local Government Studies, Climate Change Governance, Urban Resilience, Artificial Intelligence in Government, and Local political. Email: [email protected]

Ana Fitriana Poerana

Ana Fitriana Poerana is a Graduate Program in Communication Science, Padjadjaran University, Indonesia. She is also a Lecturer at Department of Communication Science, Universitas Singaperbangsa Karawang, Indonesia. Her research relates to Local Government, Public Policy Leadership, and Disaster Management. Email: [email protected]

Luki Oka Prastio

Luki Oka Prastio is a Lecturer at Department of Government Science, Universitas Sultan Ageng Tirayasa, Indonesia. Email: [email protected]. His research interests relate to Local Government Studies, Social-Political, Collaborative Governance, and Local politics.