International Journal of Scientific Research and Management (IJSRM)

||Volume||10||Issue||12||Pages||SH-2022-1320-1328||2022||
Website: www.ijsrm.in ISSN (e): 2321-3418
DOI: 10.18535/ijsrm/v10i12.sh01

Community Facilitator: Human Resources Or Human Capital?

Taat Puji Prihatin, Dedi Purwana, Agung Darmawan Buchdadi
Post Graduate Program, Universitas Negeri Jakarta, Indonesia

Abstract
Community Facilitator is indispensable in the development programs that use a community-based approach.
It has been an integral part of community-driven development since the early 1980s. The question is, is it
human resources or human capital? What competencies must a facilitator have to carry out their duties
effectively? This research was conducted with a qualitative approach through FGD and interviews with
informants to answer the following questions: (i) what is a facilitator? (ii) how does the facilitator work?
(iii) what competencies must the facilitator have? (iv) what is the difference between human resources and
human capital? (v) is the facilitator a human resource or human capital? In this research, the facilitator's
competence will be identified using the KSA framework (knowledge, skill, and attribute).
Based on the study, a facilitator is defined as a person with certain knowledge, skills, and attributes, who is
assigned to introduce, plan, and organize the implementation of a program to the program beneficiaries so
that the program can be implemented following the predetermined budget, provisions, quality, and
procedures. Facilitators must know the program cycle, local culture/tradition, formal and informal figures
in the village, and the resources required for the program implementation. The facilitator's must-have skills
include communication, organizing, mediation, administration-finance, and various construction technical
skills. Meanwhile, the attributes needed include commitment, responsibility, and adaptation.
A human resource is a worker using knowledge, skills, and commitment to carry out tasks with clearly
defined processes and outputs. Human capital is a worker who uses knowledge, skills, creativity,
innovativeness, and commitment to carry out tasks to increase the organizational value-added, with
processes and outputs that must be clearly defined. From an individual and organizational perspective,
community facilitator is categorized as human capital.

Keywords: Facilitator, KSA, human resources, human capital

Introduction
Background
A facilitator is indispensable in development programs that use a community-based approach. Its existence
has been an integral part of the development programs implemented since the early 1980s. The existence of
facilitators in development programs is recognized as very vital. Facilitators and community participation
support the program's success (1). A facilitator is very instrumental in capacity building (2). The facilitator
team plays a role in helping the achievement of the program (3). The facilitator team positively affects the
production and success of the program (4).
Facilitators are presented to unite all elements of society and liaise with the village and district government.
The existence of Pamsimas facilitators can increase public understanding of the program objectives. It is
because the facilitator involves the community from the planning and development stages to the post-program
sustainability stages (5). The four main functions of facilitators in community-based programs are (i) resource
persons, (ii) trainers, (iii) mediators, and (iv) mobilizers (6). The community facilitator team acts as a
motivator in the preparation stage, as a facilitator in the implementation stage, and as a catalyst after
facilitation (3). Facilitators act as disseminators, planners, implementers, and evaluators (1). The facilitator
plays a role in the administrative and financial management of village development and the execution of

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sustainable community empowerment, starting from planning, implementing, monitoring, evaluating,
partnership, and self-reliance (7).
At Pamsimas III, facilitators work with a Specific Time Work Agreement (PKWT) with a work period of one
year, which can be extended. The employment contract includes a job description that the facilitator must
carry out. However, the facilitator may also have to perform work out of the contract. As the work location is
in the field, a facilitator sometimes needs to work outside working days or hours.
Community facilitation is a very complex job considering the diverse characteristics of the beneficiaries and
the program's complexity. The community's educational, social, economic, and cultural background greatly
influences the facilitation process to be carried out. The facilitator must adapt to the local conditions of the
community, and more importantly, the facilitator must have certain knowledge, skills, and attributes so that
the facilitation runs well. In addition, the program's complexity also greatly affects the facilitation activities.
Facilitators must be able to deliver the complex program to people with various educational backgrounds.

Objectives
Based on the background above, researchers are interested in studying what knowledge, skills, and attributes
must be possessed by the facilitator to carry out their roles and tasks properly. In addition, researchers are also
interested in studying the characteristics of the facilitator's work, considering their duties in the field. In this
case, the researcher will analyze the facilitator's work in the context of human resources and human capital.
Therefore, this study will be conducted to answer the following questions: (i) what is the facilitator? (ii) how
does the facilitator work? (iii) what competencies should a facilitator have? (iv) what is the difference between
human resources and human capital? (v) is the facilitator a human resource or human capital?
Methodology
This research was conducted by the qualitative method through case studies. Data is collected using
observation, interviews, focus group discussions, and documentation. Data analysis techniques include data
collection, verification, triangulation, data display, and conclusion. The program used as an object of research
is the Pamsimas III Program. This program was chosen for several considerations, including (i) being carried
out massively throughout Indonesia, (ii) using a community-based approach, (iii) involving external actors in
the form of community facilitators, and (iv) it has been implemented since 2018 and is still ongoing.
The Community-Based Drinking Water Supply and Sanitation Program, known as PAMSIMAS, is a platform
for rural drinking water and sanitation development implemented with a community-based approach. The
PAMSIMAS I (2008-2012) and PAMSIMAS II (2013-2015) programs have succeeded in increasing access
to safe drinking water for 10.4 million people and access to proper sanitation for 10.4 million people in more
than 12,000 villages/kelurahan spread across 233 regencies/cities in 32 provinces in Indonesia. PAMSIMAS
Program is entering the third phase (PAMSIMAS III), which was implemented in the 2016-2020 period. It
will target 15,000 new target villages and manage the program's sustainability in more than 27,000
PAMSIMAS participating villages throughout Indonesia (source: https://pamsimas.pu.go.id/profil/ringkas-
program/).
An FGD involving three field facilitators (as research informants) was carried out to explore the role and tasks
of facilitators in the Pamsimas III program. In addition, an in-depth interview was also conducted with Dani
Wahyu Moenggoro, Director of Inspirit, who is also an expert in facilitation. The interview was conducted to
explore information and develop discourse to clarify human resources and capital.

Results And Discussion

Implementation of PAMSIMAS III at the Village level
The Pamsimas program at the village level begins with the preparation of village proposals to the Partnership
Committee Team (PAKEM) in the district, consisting of elements of Public Works and Bappeda Offices. The
PAKEM team then verify the proposal. After passing the verification, the Regent submitted the village
proposal for prospective participants in the Pamsimas Program to the Directorate General of Cipta Karya,
Ministry of Public Works and Public Housing. After verification, the Director General of Cipta Karya issued
a Decree on establishing Villages for Pamsimas Program Participants.

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After establishing the village as a program participant, the beneficiary community must carry out at least seven
groups of activities. Facilitators assist the community at all stages of program activities. Table 1 presents the
activities, knowledge, and skills the facilitator needs in each activity stage.

Table 1. Activities, Knowledge, and Skills by Program Implementation Stage

No Program Implementation Facilitator Knowledge Skills needed

Phase Activities needed
1 Field Survey (technical and Facilitation to Availability of Communication,
unit price surveys for ensure the skilled labor, organization,
wages, materials, and tools). availability of material prices, construction
materials and labor labor wages, engineering
2 Unit pricing. Facilitation to Local unit price Communication
ensure reasonable compared to
unit prices nearby villages
3 Creation of a Detailed Plan Facilitation to Construction Communication,
of Activities (DED). ensure that the standards of organizing,
construction design clean water construction
meets the correct facilities engineering
rules of construction
4 Calculation of the Cost Facilitation to Local unit price Communication,
Budget Plan (RAB). ensure a reasonable compared to organizing,
budget nearby villages bookkeeping,
construction
engineering
5 The preparationof j adwal Facilitation to The duration of Communication,
pelaksanaan konstruction. ensure a rational construction construction
schedule of implementation management
construction of each stage,
both based on
construction
standards and
experience in
previous
projects
6 Implementation of Facilitation to Techniques for Communication,
Construction Works. ensure the quality monitoring and construction
and timely evaluating engineering,
implementation of construction construction
construction work work management,
monitoring, and
evaluation
7 Operation and maintenance Facilitation to Institutional Communication
management ensure the management
implementation of and
continuous requirements
operation and for operation
maintenance and
maintenance of
clean water

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To cover all of the above necessary skills at the village level, Pamsimas III mobilizes (i) Engineering
Facilitators and (ii) Finance Facilitators. In general, one TFM will facilitate a maximum of 6 villages. In
addition to TFM, the Pamsimas Program is also equipped with District Professional Facilitators at the district
level.

Facilitator and KSA Frameworks

One factor supporting the program's success is the community facilitators' presence. According to the
Cambridge Dictionary, a facilitator helps a person or organization do something more easily or find the
answer to a problem. Meanwhile, according to Wulan Ayuningtyas Agustin and Supriyadi S.N., a facilitator
is assigned to assist the community in receiving the program and establishing cooperation with various
relevant parties in the context of community empowerment (1). In this paper, a facilitator is defined as a person
with certain knowledge, skills, and attributes that are assigned to help introduce, plan, and organize program
implementation to the program beneficiaries so that the program can be implemented under the budget, time,
quality, and procedures that have been established.
Program facilitators act as drivers and motivators for the community to develop better. Facilitators provide
knowledge transfer through training, discussion, and informal and non-formal social interactions with nearby
village people (8); the four main functions of facilitators in community-based programs are as resource
persons, trainers, mediators, and mobilizers (6). Facilitators are presented among the village people to unite
all community elements and liaise the village with the district government. The existence of Pamsimas
facilitators can increase public understanding of the program objectives. It is because the facilitator involves
the community from the planning and development stages to the post-program sustainability stages (5).
Facilitators act as program disseminators, planners, implementers, and evaluators. As a disseminator, the
facilitator introduces the program to the village people and officials. As a planner, the facilitator facilitates a
self-help mapping to identify the location of beneficiaries and conducts community discussions to agree on
programs and schedules for the implementation. In the construction stage, facilitators monitor and supervise
the construction process. As an evaluator, the facilitator evaluates the programs implemented by the village
people. Community attendance indicates their participation at each stage. In the preparatory stage, the
community is also present in socialization to determine the direction of program implementation. In the
planning and social marketing stages, the beneficiaries agree on the program's vision and mission (1).
A facilitator is a professional implementer of programs/activities for the success and achievement of
development goals (9). Facilitators are empowerment implementers who assist the project beneficiaries and
establish cooperation with various parties (1). The POB book for procurement of facilitators defines a
facilitator as personnel assigned to ensure that the entire program implementation process at the community
level can run with good quality and realize a self-reliant community to support the program's sustainability.
Discussions and analyses about facilitator competencies are carried out using the KSA framework (knowledge,
skills, and attributes). Michael Stevens and Michael Campion first proposed this framework as knowledge,
skills, and abilities (Stevens & Campion, 1994). Gregory Roncwezsky modified it into knowledge, skills, and
attributes. Although it points to the same substance, attribute seems broader than ability. Attributes are other
things that determine whether knowledge and skills can be used to carry out a role or achieve goals (11).
Roczewsky further stated that it could be due to attitude, but we have all seen an athlete with all the skills
needed but cannot perform optimally when competing. There are many possibilities as to why it happened,
and it is too simple if it is solely due to attitude.
Knowledge is the theoretical or practical understanding of a subject (12); a collection of information that is
usually factual or procedural (13); or the understanding of concepts, focusing on theory, not practice (11). For
example, just because someone has read hundreds of communication papers does not mean they can
communicate well. Skills are proficiencies developed through training or experience (12). Capacities or
proficiencies acquired through training or hands-on experience (13). Or abilities developed during training or
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work when an individual can practice and apply theoretical knowledge in the work environment (11). Skills
are the actual application of knowledge.
Ability is a quality of doing things (12), strength or capacity to perform an activity or task (13), or strength or
capacity to perform an activity or task (14). Skill determines whether a person can do something, while ability
is to express how well and often a person does it.
Facilitator Job Description
Based on the Standard Operational Procedure (POB) for Procurement/ Replacement of Pamsimas III
facilitators, the tasks of community facilitators include:
(i) Village-level socialization and preparation of proposals, including facilitation in IMAS Phase I
activities, formation of proposal preparation team and AMPL cadres, as well as preparation of
proposal documents for water supply and sanitation programs to be submitted to the district
government through the AMPL Working Group,
(ii) Planning of PJM ProAKSI and planning and implementing community work plans (RKM),
including assistance in village community discussion activities, development of SPAM technical
designs, preparation of SPAM management plans, and formation and strengthening of an
institution,
(iii) facilitation in the operational and maintenance period of SPAM, monitoring and strengthening the
institution, technical and financial performance, facilitation of discussion to increase management
capacity, hands-on training, and increase the role and performance of the BPSPAMS Association,
and
(iv) advocacy to village and sub-district governments to use rural budgets to improve the performance
and development of SPAM to achieve the target of universal access to water supply and sanitation
at the village level (100% village level services). In carrying out this task, TFM is expected to be
able to maximize cooperation with the Village Assistance Team.
FGD with the facilitator revealed that the facilitator has the freedom to adjust the details of the activity to fit
with the local culture and traditions. The adjustment applied to the program goals (or intermediate goal) is
intended to improve the effectiveness of the field implementation. The interview with supervisors at the
District Public Works Office confirmed that the facilitators were free to carry out the necessary activities to
meet the output and compliance with the project's administrative requirements.
Knowledge, Skills, and Attributes
From the FGD with 3 Facilitators of Pamsimas III of Temanggung Regency, it is known that the Pamsimas
III facilitators are tasked to facilitate the beneficiaries in the development process using a community-based
approach. Facilitators help communities develop the technical and institutional knowledge and skills needed
to (i) plan and implement Pamsimas activities and (ii) the management and operation of water supply facilities.
The Ministry of PUPR determines villages participating in the Pamsimas program based on the proposal of
the regent/mayor. The program fund comprises 70% from the central government, 10% from the village
government, and 20% from the community contribution. Of the 20% community contribution, 16% can be in
kind (material, labor) and 4% in cash (money).
After the village is established, a Community Activity Plan (RKM) document is prepared. The document
includes a field survey (technical survey and unit price survey for wages, materials, and tools), identification
of unit price, development of a Detailed Engineering Design (DED), preparation of budget (RAB), and
construction implementation schedule. After the RKM document is completed, the facilitator facilitates the
implementation of construction work and water supply management, including operation and maintenance.
According to the facilitator, a facilitator must behave well to carry out the task properly. The acceptance of
the village people depends largely on the facilitator's attitude, especially in the early days of the encounter. In
this context, attitudes are expressions, speech, and actions the facilitator shows to village people. In the next
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stage, the attitude also includes responsibility and commitment to successfully implementing the program. In
addition, the facilitator must also be able to adapt to local cultural norms. Failure to show a good attitude may
result in the community's rejection of their presence and subsequently refuse the ideas the facilitator will
convey.
Expression, speech, action, commitment, responsibility, and adaptation are innate talents that can be
developed or trained. This innate talent in the KSA framework is called ability or attributes. It is the strength
or capacity to perform an activity or task (14); the quality of being able to do something (12); or other things
that determine whether knowledge and skills are deployed to fulfill a role or achieve a goal (11). In this paper,
ability and attribute are used interchangeably.
Second, based on the information gathered during FGD, the facilitator must know the local socio-cultural
conditions. It includes formal figures and informal figures. These figures are catalysts for program
communication and community mobilization effectiveness when needed. In addition, the facilitator must also
have knowledge of the program cycle and the various resources needed to implement the program.
Third, the facilitator must have all the skills necessary to carry out all phases of the program, starting from
planning, implementation, monitoring-evaluation, and the program sustainability stage. Communication is a
key skill that a facilitator must have. This skill is required at almost every stage of the program. In addition, a
facilitator must also have motivating and mediation skills in addition to technical skills related to the program.
Those are the skill dimension within the KSA frameworks. From the FGD conducted with the facilitators, the
main skill a facilitator must have is communication skills. Furthermore, organizing activities is also important
in facilitating the program, in addition to technical skills such as simple bookkeeping, construction
engineering, construction management, and monitoring evaluation (6).
Human Resources vs. Human Capital
The interview with the resource person found that the difference between a worker as a resource and as capital
can be approached from the individual and the organizational level. The individual level of the worker
analyzes the work behavior. There are two types of workers:
(i) A worker who carries out work based on clear or rigid job descriptions, process-oriented,
transactional, and aimed at achieving the outputs (or intermediate outputs) that the organization
has set, and
(ii) A worker who works without a rigid job description has freedom of action, is output-oriented and
transformational, and aims to increase the organizational value added.
In the first type, a worker relies on knowledge, skills, motivation, and commitment. Work areas such as
cashiers, secretaries, accountants, factory machine operators, drivers, and the like require no creativity or
innovativeness. Their work is clear and routine. The nature of the work is to support the achievement of the
goals that the organization has set. While in the second type, a worker must use knowledge, skills, motivation,
commitment, creativity, and innovativeness. The work is often indecisively decipherable, varied, and results-
oriented. The nature of the work is to increase the organization's added value. Therefore, creativity and
innovation are needed. Positions such as CEO, R&D, and marketing require a second type of worker.
Workers or humans with the first type of work behavior are called human resources, while humans with the
second type of work behavior are called human capital. Table 2 compares human resources and human capital
at the individual level.

Table 2. Comparison between Human Resources and Human Capital at the Individual Level

Dimension Human Resource Human Capital

Job description Detail, clear/rigid Flexible
Orientation Process Output
Characteristic Routine, transactional Varied, transformational

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 Purpose Achieve the output (or Increase the organization's
intermediate output) that the added-value
organization has set
Required competencies Knowledge, skills, motivation, Knowledge, skills, motivation,
and commitment commitment, creativity, and
innovativeness

There is no fundamental difference between the individual level and the organizational level. At the
organizational level, a worker is viewed by how the organization assigns roles to the worker. The
organizational-level analysis emphasizes that a person with the potential to become human capital can become
a human resource if the organization assigns clear/tough, routine tasks, focuses on processes, and does not
require a worker's creativity and innovativeness. The organization will exploit human resources as part of
production inputs. On the other hand, the organization will improve human capital quality to continue creating
added value. Table 3 compares human resources and human capital at the organizational level.

Table 3. Comparison between Human Resources and Human Capital at the Organizational Level

Dimension Human Resource Human Capital

Job description Detail, clear/rigid Flexible
Orientation Process Output
Characteristic Routine, transactional Varied, transformational
Output or output between Clearly defined Align with the vision and
mission of the organization
Required competencies Knowledge, skills, motivation, Knowledge, skills, motivation,
and commitment commitment, creativity, and
innovativeness
Organizational views Sources of costs Sources of profit (added value)
Organizational actions Exploit Nurture and develop

As discussed in the facilitator's job description section, the POB does not contain technical details of what the
facilitator should do. POB is more of a result/output-oriented reference. From the FGD with the facilitator, it
is known that the facilitator has the freedom to carry out the details of the activities needed to achieve the
expected results/outputs. POB only writes the words socialization, planning, mentoring, and advocacy. There
needs to be a further detailed explanation of how socialization, planning, mentoring, and advocacy should be
carried out.
In addition, in the field, many jobs in the program need to be listed in the facilitator's job description, such as
community mobilization, coordination with village administration, or persuasion to deal with conflicts. As
stated by Jumrana and Megawati Asrul Tawulo from Haluoleo Kendari University, the skills needed by the
facilitator include motivating skills, namely encouraging the community to play an active role in every stage
of the activity; facilitation, namely organizing activities that involve the community; communication, namely
conveying all complete and clear information; consultation, which is to provide advice and consideration
regarding things that need to be done by the community in each stage of the activity; and mediation, i.e.,
connecting the village people with the government (15)
Based on the nature of the facilitator's works, which are (i) the facilitator has the freedom to make adjustments
to the details of the activity to achieve the expected results/outputs; (ii) many detailed activities in the program
are not listed in the facilitator's job description; (iii) strongly requires creativity; and (iv) supervisors in the
District Public Works Office gives the facilitator freedom to carry out the necessary activities to meet the
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output targets and to comply with program administration provisions, then the facilitator meets the criteria as
human capital. Creativity and innovation are important elements of human capital that distinguish it from
human resources (16,17).
Conclusion
Based on the literature review and FGD conducted with the facilitators, a facilitator is defined as a person with
certain knowledge, skills, and attributes, who is tasked to introduce, plan, and organize the implementation of
a program to the program beneficiaries so that the program can be implemented under the established budget,
time, quality, output, and procedures.
To carry out their duties well, facilitators must have certain knowledge, skills, and attributes. Knowledge is a
theoretical or practical understanding of an object, such as knowledge of socio-cultural conditions, formal and
informal figures, program cycles, and resources needed in program implementation. At the same time, skill is
proficiency in applying knowledge developed through training or experience, such as communication,
organizing, mediation, and various construction technical skills. Attributes are the strength or capacity to use
knowledge and skills to perform roles or duties optimally. The attributes are expression, speech, action,
commitment, responsibility, and adaptation.
This research proposes a discourse for further study that a human resource uses knowledge, skills, and
commitment to do a definite job with clearly defined processes and outputs. Human capital is a person who
uses knowledge, skills, creativity, innovativeness, and commitment to carry out work to increase the added
value of the organization with processes and outputs that have yet to be clearly defined. Referring to the
characteristics of human resources and human capital that have been proposed, it can be concluded that from
both individual and organizational perspectives, a facilitator is categorized as human capital.
Acknowledgement
I am grateful to Mr. Dani Wahyu Moenggoro, with whom I have had the pleasure to work during this and
other related projects. Also, to Professor Dedi Purwana and Mr. Agung Darmawan Buchdadi, who provided
me with extensive personal and professional guidance and taught me a great deal about both scientific research
and life in general
Statement Of Authenticity
I, the Author, declare that this manuscript is original, has not been published, and is not currently considered
for publication elsewhere. I also declare that during the review process by this journal, I will not withdraw the
manuscript and send it to another journal.
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