Communication Factors in Implementing Solid Waste Management

Policy in Manado

Lingkan Easter Tulung

Social and Political Science Faculty, Universitas Sam Ratulangi, Manado, Indonesia

Keywords: Waste management, communicator, message, media, communicant, effect

Abstract: The research is aimed at analyzing the communication of the policies of solid waste management in

Manado, seen from the communication factors. First are the knowledge and understanding of the contents of

the policies by the government, responses, and abilities to communicate, as well as the credibility of the

government. Second is the clear and understandable content. The third is the use of appropriate media in

delivering the messages. Fourth, people’s understanding, attitude, and community behavior on solid waste

management are highly determining the success of the implementation of the policies in Manado. The

research applies to qualitative methods. The data were collected through observation and in-depth

interviews with 20 informants, which include government apparatuses and the community. The research

found that governments have adequate knowledge, understanding policies, responses, communication

ability, and credibility. However, the qualities are not supported by the availability of appropriate media in

distributing the information. In addition, the messages delivered to the people have not been able to change

the behavior of most of the people in Manado in terms of waste management.

1 INTRODUCTION

One of the critical issues in the urban area

environment is waste. It is a fact encountered by

society, especially in a crowded area. Along with the

increase in population, consumption patterns and

prosperity have increased the amount of waste.

However, increasing waste is not balanced with

proper and effective waste management, causing

garbage buildup in several places. Waste that is not

managed correctly leads to several problems. First,

insects or pests breed on it, allowing the spread of

infectious diseases (such as diarrhea, cholera, and

typhus). Second, waste can contaminate air, like, bad

smell, ash, poisonous gas, and burning smoke.

Waste can also contaminate water, such as the bad

smell of freshwater and the change of watercolor.

Third, waste may bring flood in the rainy season,

which is caused by a clog of water flow, which is the

potential for financial loss or casualties. Forth, the

decreasing aesthetic value around the landfills has

the potential to cause social conflict. The decreasing

aesthetic of the city also affects the tourism sector in

Manado city, because beauty and cleanliness are the

aspects which attract foreign or domestic tourist.

The waste issue in Manado city is caused by

several factors. First is the low awareness of waste

management. It is evident where the people throw

away the garbage, for example, throwing out the

garbage while they are inside a vehicle. Second,

society still breaks the law, such as dumping the

garbage at any period. Third, the punishment for a

society that violates the rule is not explicit, thereby

allowing them to continue the activity. Forth, the

people have a lack of understanding of waste

management as well as the impact. For example,

people in Manado still use the old method, such as

burning, throwing the garbage into the river,

throwing the trash in any place, or amassing them in

the field. Fifth, the limit of temporary disposal area

and landfills cause the waste to pile up in several

areas, thus decreasing the aesthetic value of the city.

In the attempts to decrease and resolve the waste

issue, the government of Manado city has

established the Policies of the Regional Regulation

of Manado City Number 7 of 2006 Waste

Management and Retribution of cleaning service.

Government of Manado city, through the relevant

institution, namely the environmental service of

Manado city, has the duty to implement the

606

Easter Tulung, L.

Communication Factors in Implementing Solid Waste Management Policy in Manado.

DOI: 10.5220/0010706700002967

In Proceedings of the 4th International Conference of Vocational Higher Education (ICVHE 2019) - Empowering Human Capital Towards Sustainable 4.0 Industry, pages 606-615

ISBN: 978-989-758-530-2; ISSN: 2184-9870

Copyright

c

regulation. The regulation of waste management in a

city aims to keep the city clean and healthy.

Although the waste policies in Manado city has

been implemented since 2007, the problem has not

been resolved. The rapid urban population has

resulted in an increase in garbage buildup. That

affects the provision of landfills. The volume of

garbage produced in 2016 was around 328.5 tons per

day (1,037 m3/day). It increased to around 412.9

tons per day (2.064 m3/day) in 2017. The research

which was done by Sudrajat, Liando, and Sampe

(2017) founded that the regulation was not optimal

because the infrastructure is no longer suitable to

use. Indeed, some of them cannot be used. In

addition, the limit of the supporting tool, such as the

capacity of a garbage truck, adds to the problem.

Second is the limitation of human resources in terms

of numbers and quality. The third is the limited

budget to provide garbage trucks and other facilities.

Forth is low awareness of the society in cleanliness.

Moreover, communication policy is one of the

important things in implementing waste

management. However, society has not fully

participated in it, for they have not entirely

understood the policies established by the

government in relation to waste management. The

communication of waste management policies is

carried out through the community and religious

activities such as Pembinaan Kesejahteraan

Keluarga (PKK) and Musyawarah Perencanaan

Pembangunan (Musrembang). Nevertheless, it is

only in terms of informing society, instead of

changing their behavior toward waste. A similar

thing occurred to communication through media in

the form of billboards and public service

advertisements. Therefore, this study is conducted to

analyze the communication factors that influence the

implementation of waste management and the

obstacles in communicating the policies of waste

management.

2 LITERATURE REVIEW

2.1 Communication and Public

Administration

Communication refers to an action done by an

individual or more who send and receive messages

that are distorted by noise, that occurs in a particular

context, that has a specific effect, and that creates

the chance to give feedback (DeVito 1996:23).

According to Head (2007:39), the main focus of

communication is the information about the

availability and advantages of services, people’s

access to the service, people’s rights to get the

service, change of control, and several rights and

obligations. It means that communication is related

to public service. Further, Edward III (1980:17) said

that the implementation of the regulation would run

well if it is supported by communication factors,

disposition, resources, and bureaucracy structure.

The communication factor in that theory is the first

factor in determining the success of regulation,

among other factors. The regulation is related to

what the government has established.

In addition, Edward III (1980:17) said there are

three indicators that can be used in measuring the

success of the communication factor, which

indicators are: 1. Transmission. Distribution of

excellent communication will be able to produce a

useful implementation too. Often there are problems

in the distribution of communication that is a

misunderstanding in the distribution of

communications that is misunderstanding or

miscommunication caused many levels of

bureaucracy that must be passed in the process of

communication so that it is expected to be distorted

in the middle of the road. 2. Clarity.

Communications received by the policy

implementers (street-level-bureaucratic) must be

clear and not confusing or ambivalent/ambiguous. 3.

Consistency. Commands given in the

implementation of communication should be

consistent and clear to set or run. If the command is

given frequent changes, it can cause confusion for

implementers in the field.

The indicators are interconnected and influence

each other. Excellent delivery of communication

will lead to proper implementation. However, good

implementation is inseparable from the clarity of

communication that is conveyed or received by the

implementer of the policy. The clarity of

information and communication is insufficient if the

communication is not consistent, or the policy is

often changed, bringing confusion to the people

implementing them.

2.2 Communication Factor

According to Ndraha (2003:467), communication, in

general, emphasizes two aspects: First is the

emphasis on the process of conveying message

based on Laswell’s theory (message transmission

theory): “Who says in what in which channel to

whom with what effect.” Second, giving emphasizes

the exchange of values or the process of exchanging

thought. “the process of the exchange of meaning by

Communication Factors in Implementing Solid Waste Management Policy in Manado

607

verbal and non-verbal signs operating through

cosmologies, cultural, contents, and conduits.”

The theory of communication by Harold D.

Laswell mentioned that the best way to explain the

process of communication is to answer the question

of “Who says what in which channel to whom with

what effects.” The answer to Laswell’s question is

the elements of the communication process, namely:

Communicator, message, media, receiver, and

effect.

Based on the above theory, the research is to

examine the communication factors that affect the

implementation of waste management policies. The

first question (who) refers to who took the initiative

to communicate. In this case, are the leaders or staff

within the scope of the Office of the Environment,

and the District Head spread in several sub-districts

of the city of Manado. Second is what is said. This

question relates to the content of communication or

what message is to be conveyed in the

communication. In this case are the purpose,

objectives, and implementation procedures of the

Solid Waste Management Policy. The third question

is by which channel or through what media. What is

meant by media is a communication tool, such as

talking, body movements, eye contact, touch, radio,

television, newspapers, internet, brochures,

advertisements, and so on. Of course, not all media

are suitable for communicating the policies. The

fourth question is “to whom,” or ask who the

audience is or recipient of the message delivered. In

this case, is the community. The fifth question is

what effect or what effect/influence of

communication. This question can ask two things,

namely what you want to achieve with the results of

the communication, and what people do as a result

of the communication

3 METHODOLOGY

The method used in this study is a qualitative

approach. This study tries to find answers to the

question of what communication factors influence

the implementation of robust waste management

policies in the city of Manado.

Judging from its purpose, this study belongs to

applied research because the results are expected to

be used to solve practical problems. Data and

information are extracted in-depth and detailed to

explain the relevance of issues in terms of program

effectiveness. The primary data source is obtained

through observation and interview (in-person

interview or face-to-face interview) with 20 random

informants. Data obtained from primary sources,

namely data obtained from informants such as

staff/leaders of the Department of Environment,

Village Head, Sub-District Head, Cleaning Officers,

and Communities scattered in Sario, Malalayang,

Tikala District, Mapanget, Tuminting, Wanna.

While the Secondary Data Sources are obtained

from various documents, such as government

reports, print media, and other documents related to

the research problems. Document analysis is carried

out to obtain more complete and supporting

information from the results of the interviews.

To analyze data, the first is organizing the data,

which consists of field notes, researcher comments,

pictures, photos, documents in the form of reports,

articles, and so on. Then processed and analyzed the

data by using descriptive qualitative method, which

is a technique that describes and interprets the

meaning of the data collected by paying attention to

and recording as much as possible aspects of the

situation under study, so as to obtain a general and

comprehensive picture of the phenomena of the

research topic.

4 DISCUSSIONS

The Solid Waste Management Policy number 7 of

2006 is intended to support the realization of the city

of Manado as the capital of a Province that is clean,

healthy, comfortable, and environmentally friendly.

Therefore, there is a need for awareness and

participation of all components of the community to

maintain cleanliness and the need for environmental

regulation and arrangement in the jurisdiction of the

Manado city government.

Government efforts to address waste problems in

Manado City:

 Integrated Waste Management Site (TPSP)

3R in each sub-district to reduce the

amount of waste, so it does not accumulate

in the landfill

 Setting the schedules for garbage disposal,

which is between 6 pm and 6 am

 Hygiene Reducing Plastic Waste Program

in the State Civil Apparatus (ASN) in

Manado City Government. ASN is required

to carry a thermos of drinking water,

instead of mineral water in plastic

packaging, especially during working hours

 Construction of a regional waste disposal

site (TPA) in the Ilo Ilo village of Word,

Wori sub-district

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 Waste Bank Program. The government

holds a Waste Bank Program with the aim

to develop the community self-awareness to

process waste, starting from the household

waste. People can categorize waste into

organic waste and non-organic waste. Non-

organic waste such as plastic, bottles, and

paper is collected and sold to the Waste

Bank. This way, the Waste Bank program

can have economic value for the

community.

In the policy implementation, communication

factors greatly influence the process of policy

implementation. Based on Lasswell’s theory, the

communication process suggests five components or

factors that must be considered. These five factors

are communicators, messages, media,

communicants, and effects.

4.1 Communicator Factors

The first factor is the communicator. In this case, the

staff/leaders of the Environmental Office, Head of

Sub-District, Head of Village, and Head of

Environment in the city of Manado. The apparatus

resources, which are also communicators in the

process of communication with the community, are

the determining factors in socializing or

communicating the Solid Waste Management Policy

in the city of Manado. The authority to carry out

robust waste policy implementation in the city of

Manado was centralized (delegated) from the

Manado City Government Environmental Agency,

to the sub-district office in each Manado city sub-

district. The delegation of authority is intended to be

more effective in the implementation of robust waste

policies. In addition, sub-districts are considered to

be more familiar with and close to their

communities, making it easier for the process of

socialization of robust waste policies.

In the dimension of the communicator, in this

case, the government apparatus, the first thing to

examine is the knowledge and understanding of the

communicator about the policy. According to

Edwards III (in Winarno 2002: 126-1270, the first

requirement for effective policy implementation is

that those who implement the decision must know

what they must do. Knowledge of government

officials in understanding what constitutes policy

goals and objectives is essential. Thus he will fully

understand how to implement it. The lack of

understanding of policies often causes various

obstacles in implementation. This is due to the

limited information after the policy is formulated.

The limited information causes a lack of

understanding of the contents of the policy,

consequently affecting how to implement or

implement the policy.

The results of the interviews about the

knowledge and understanding of the government

apparatus regarding waste management and

restitution management policies are highly

satisfying. Government officials understand the

contents of the policy and are able to explain the

efforts made to reduce waste problems in the city of

Manado. For example, the availability of facilities

and infrastructure, the availability of human

resources, in this case, concerns cleaners, as well as

the number of funds allocated for the construction of

facilities and infrastructure.

The second thing that was examined from the

communicator factor was the communicator’s

response. In this case, how the government

apparatus responds to people’s complaints and their

speed in solving problems. For example, community

complaints still have some environment that is still

dirty due to the accumulation of garbage. Garbage

buildup is caused by the absence of officers carrying

garbage. To date, the community has a positive

opinion on the government’s response to community

complaints regarding the problem of waste and

environmental cleanliness. However, the realization

is rather slow due to the limited number of waste

transport officers, thereby creating obstacles in

minimizing waste and supporting environmental

cleanliness.

The third thing that was examined from the

communicator factor was communication skills.

Communication that is done without reaching the

target is the fault of the communicator.

Communicators are initiative takers in the process of

communication. According to Cangara (2008: 85),

the main actor in the communication process

(government apparatus) plays a vital role, especially

in controlling the course of communication. For that,

a communicator must be skilled at communication,

and also rich in ideas and full of creativity. In

connection with the role of communicators in

delivering messages, the results of interviews with

informants said that communicators who have skills

in preparing words would make it easier for people

to understand the message conveyed.

Communicators who have expertise in this matter

understand the problems discussed will be trusted by

the community. Furthermore, communicators who

have a right attitude and understand the background

of the communicant (community) such as the level

Communication Factors in Implementing Solid Waste Management Policy in Manado

609

of education and employment can provide good

response for the community. The community will

easily believe and do what the communicator says. It

can be concluded that the community can trust a

communicator who has good credit so that the

community will be more comfortable to do what is

conveyed.

According to Rachmat (2005: 260), credibility is

a set of communicative perceptions about the

properties of communicators. In this definition, there

are two things. First, credibility is the perception of

communication, so it is inherent in the

communicator. Second, accessibility with regard to

the characteristics of the communicator hereinafter

referred to as components of credibility. The

components of credibility include: first, expertise,

that is, the impression formed by the communicant

about the ability of communicators with their

relationship with the topic being discussed.

Communicators who are high on their expertise are

considered intelligent, capable, expert, experienced,

and trained. Second, trust is the impression of

communicants about communicators that are related

to their character (honest, dishonest, sincere, and so

on).

4.2 Message Factor

The second factor is the message. The message is

the content or intent that will be conveyed by one

party to another. In this case, the message is a series

of information, information, and explanations related

to the Solid Waste Policy that must be delivered by

the government apparatus to the people of Manado.

The message can be delivered directly or indirectly.

Indirectly means through media. Whereas direct

means face to face or communication carried out in

public. The message conveyed through the media

was through billboards displayed in several places in

each village. In addition, it can message delivered

through newspapers, online news (Indopost,

Liputan6.com, Tribun.com), or the Manado City

Government website, and social media (Facebook).

Messages or information delivered in printed and

online newspapers is related to news of robust waste

policies, such as cleaning activities by the State Civil

Apparatus (ASN), prohibition on the use of plastic

bottles of drinking water in ASN circles,

socialization of Waste Banks, and Capture

Operations Hands (OTT) for people who throw

litter.

The message conveyed by the Environmental

Agency through advertising or billboards is “Do not

Dispose of Waste Trash, especially near the river,”

“Dispose of Trash in its Place So that the

environment is clean and healthy,” “Smart People

Dispose Trash in Its Place,” or “Marijo Baking

Clean Manado.” The message delivered is concise,

easy to understand, and easy to remember. Even so,

the message is only limited to advice or appeal

without reminding the public about the impact of a

dirty environment or the danger of littering the

environment. Thus, the contents of the message are

not able to change people’s behavior towards

garbage, primarily if the message is delivered only

once or only read at a glance.

The message delivered directly is through

community activities or religious activities.

Messages are directly delivered by the Head of Sub

District in religious activities, such as condolence.

Usually, the contents of the message only appeal and

remind them of the importance of maintaining

cleanliness. Therefore the community is invited to

dispose of garbage in a place provided, such as a

temporary landfill, by distinguishing organic and

non-organic waste. The messages remind the public

to clean the plastic trash in the culverts and remind

the public to dispose of the garbage at predetermined

hours. However, the socialization of Waste Banks,

benefits, and objectives are still minimal. In

addition, the socialization of strict sanctions for

people who litter, as well as those who dispose of

the garbage, is not carried out at the appointed hours.

Firstly, it is due to the limitations during religious

events. Secondly, in the delivery of messages,

communicators only limit the amount of information

conveyed. In other words, they only convey two or

three pieces of information by emphasizing the

things that are considered most important.

The results of the interview revealed that the

message conveyed directly to the community was

more effective due to several factors. First, it is

delivered directly to the community in large

numbers so as to reach a broad community. Second,

the message delivered can be repeated using tone

convergence that emphasizes essential messages.

Third, the language used is easier to understand and

digest by all levels of society, especially the message

that is delivered using everyday language or the

dialect of the local community. Fourth, the use of

non-verbal languages, such as facial mimics, hand

movements, gestures that function to emphasize and

complement several verbal messages, can attract the

attention of the public to hear and understand better.

Conversely, the delivery of messages with the use of

convoluted language and the absence of facial

expressions or hand and body movements tend not

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to attract the attention of the public to hear the

message being conveyed.

4.3 Media Factors

Media or channels are tools or facilities used to

convey messages from communicators to

communicants (Cangara 2006: 119). Media is a tool

used in the process of delivering messages or

disseminating Waste Management Policies. The

media includes radio usage, newspaper media,

billboards, info/announcement boards, and internet

(website) and social media (Facebook, WhatsApp)

usage. The data about the use of billboards in the

city of Manado with the message “Do not litter”

from the environmental service in the amount of 75

in 2015, 108 in 2016, and the number decreased to

70 in 2017-2018. This amount is still relatively small

compared to the population of the city of Manado.

So that the message cannot be reached by all levels

of the city of Manado. The Department of

Environment has not used advertisements on

electronic media such as radio or television, so that

the message range is minimal.

Based on the results of interviews with

informants, in this case, the staff at the Manado City

Environment Office, the use of the media was

limited to info/announcement boards, billboards,

local newspaper media (Comments, Manado Post,

Tribun), online media (News, Indopost, Government

website Manado City) and social media (Facebook

and WhatsApp). This is due to the limited budget for

the use of media in disseminating the Solid Waste

Policy. The use of local newspaper media to report

matters relating to the activities of the City of

Manado in terms of environmental clean-up, or

socialization of the benefits of Waste Banks.

Whereas the use of WhatsApp is for the internal

benefit of the organization with the Smart WA DLH

address about activities related to environmental

preservation, such as Beach Cleaning, sidewalk

cleaning especially cleaning or lifting plastic waste.

The activity is held every Friday. The use of

Facebook is only limited to information on activities

and hand capture operations (OTT) for those who

dispose of litter.

4.4 Communicant Factor

The fourth factor is the communicant or the

community as the recipient of the message or

information from the communicator (apparatus)

related to the Waste Policy. Communicant is one of

the actors in the communication process that cannot

be ignored because the success of the waste policy is

inseparable from the response of the communicant

(community). In the dimensions of the

communicant, the essential things to study are

understanding, perception, and attitude of the

communicant.

Based on the results of interviews with

informants, communicants as recipients of messages

from communicators (in this case, the government

apparatus) understand the contents of government

policy. Direct and intense communication will be

more accessible for the community to understand the

content, the purpose, and objectives of the Waste

Management Policy. In addition to direct

communication, public understanding is also

obtained from the media used to socialize the Waste

Management Policy. For example, billboards

displayed in several places in a residential area that

remind the public to dispose of garbage in its place

and at regulated hours and strict sanctions against

violations of these rules can increase public

understanding of maintaining environmental

cleanliness. However, according to the informant,

the media, in this case, the billboards, used by the

government for the dissemination of messages, did

not have much effect on maintaining cleanliness.

Conversely, self-awareness factors because of their

understanding and knowledge of the importance of

environmental sustainability significantly contribute

to their cleanliness.

The second thing that is examined from

communication is the attitude of the community.

Attitude is an individual’s feelings about objects,

activities, events, and other people (Aw 2011: 75).

This feeling becomes a concept that presents likes or

dislikes. Attitudes can be positive, negative, or

neutral. Attitudes can encourage a person to be

ambivalent towards an object, which means he must

continue to experience doubts in a positive or

negative opinion of certain events. There is an

influence of attitudes towards a person’s behavior,

and it is often irrational. For example, an individual

considers it essential to dispose of garbage in its

place as an effort to maintain environmental

cleanliness and as an effort to preserve the

environment. This was done to avoid flooding that

could befall during the rainy season, especially if the

person lives in a flood-prone area or near a river.

Rationally, that attitude will encourage the behavior

of throwing garbage in its place and maintaining the

cleanliness of the environment. But sometimes the

correlation with behavior is irrational, meaning that

even though his attitude supports the government’s

efforts to maintain environmental cleanliness and

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environmental preservation, in reality, he or any

individual who is not interested in or does not like to

dispose of garbage in its place even tend to litter. For

example, throwing garbage from the vehicle or

throwing garbage in the river. Attitudes can change

as a result of experience. Tesser 1993 in Aw 2011,

said that hereditary factors could influence attitudes

indirectly. A person’s attitude can also change due to

the persuasion of knowledge found in the media.

This can be seen when the media affects an

individual. This way, the attitude of the

communicant can be affected by the media or

billboards as a means of delivering messages on

waste management policies. The positive attitude of

the communicant (community) to dispose of garbage

in its place can be affected if a person or community

sees intensely and repeatedly reads about the

message.

The third thing that is examined from the

communicant is perception. According to DeVito

(1997: 75), perception is a process by which we

become aware of the many stimuli that affect our

senses. In communication, perception gives meaning

to sensory stimuli that come from an individual in

the form of verbal messages and nonverbal

messages. Perception has a vital role in the success

of communication. This means that accuracy in

perceiving sensory stimuli reflects the success of

communication. Conversely, failure to perceive

stimuli causes miscommunication. Therefore, it can

be said that perception is the core of communication.

Because our perceptions are inaccurate, it is

impossible for us to communicate effectively. The

perception determines what messages to choose and

what others to ignore.

The results of the study indicate that public

perceptions of government efforts in implementing

waste management policies are sound. The

government has been trying to overcome the

problem of waste. This is indicated by the

government’s seriousness in regulating the schedules

of the garbage disposal and giving strict sanctions to

violators of the rules. Also, the government attempts

to build facilities and infrastructure such as the 3R

polling station on the outskirts of the road, building

a landfill in the Word sub-district and increasing the

number of cleaners by providing incentives in the

form of salary based on the Minimum Wage

Regional in Manado. The community also thinks

that the government’s efforts to reduce plastic waste

by issuing rules prohibiting the State Civil

Apparatus from using drinking water in plastic

packaging and using water thermos very well in

order to reduce plastic waste.

Although the various efforts made by the

Manado City Government in the context of

overcoming the problem of waste is welcomed by

the community, the public perception that the city of

Manado was free of garbage means that the city of

Manado is still far from expectations. First, even

though the government has sought various programs

to deal with waste problems such as regulating hours

of garbage disposal, there are still people who

dispose of garbage not at their hours and throw

garbage at random, such as from vehicles, dumped

in culverts, or on rivers.

Secondly, the community considers the

environment is still dirty and even very dirty due to

the lack of supporting facilities and infrastructure

such as the Temporary Disposal, allowing them to

throw it on the side of the road, which significantly

disrupts environmental aesthetics and causes an

overpowering smell. It is also found that there are

still people who throw garbage in the river,

especially in the morning at 4 o’clock, when other

people are still sleeping. So, during the rainy season,

there are a lot of last-minute piles of garbage in the

riverbanks.

Third, the public perception about the cleanliness

of the city is still very far from expectations because

the accumulation of garbage also occurs due to the

lack of janitors who carry garbage. For example, in

several places in the city of Manado, such as the

Tuminting sub-district, the Tuminting sub-district,

and the village of Paniki, Mapanget sub-district

cleaners only carry garbage twice a week. As a

result, the garbage hung in front of the fence, and

there is a buildup of garbage in front of the yard.

Fourth, one of the activities to support the

success of the Policy on Waste Management is

through a Waste Bank. As for the Waste Bank

through the slogan of the “Lose the Trash, get the

cash,” it is hoped that the community will be able to

carry out the 3R movement, namely Reduce, Reuse,

and Recycle. Communities can reduce waste,

choose, and manage waste again. In the sense that

the community is able to choose organic waste and

non-organic waste, paper waste and plastic waste are

selected based on their categories and are estimated

to the Waste Bank so they can make money. Hence,

a smart community in waste management can

improve the welfare of their families.

However, the community still lacks the use of

the Waste Bank as a place to exchange plastic and

paper waste that can generate money. For example,

communities in several areas that provide the Waste

Bank, such as in Ranotana and Wanea Villages, still

do not use the Waste Bank. Public perception about

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the procurement of Waste Banks as a government

effort to educate the public to process waste--

starting from households by choosing waste

according to its type, namely organic and non-

organic so that the waste that is appropriately

managed can bring economic benefits is still far

from the expectation of success. This is because the

socialization of the Waste Bank is still lacking, so

many people still do not know about the existence,

purpose, and benefits of the Waste Bank. Also, not

all areas in the city of Manado provide Waste Bank

facilities.

4.5 Effect Factors

The fifth factor is the effect. The effect is the

difference between what is thought, felt, and done

by the recipient of the message before and after the

Waste Policy is communicated or socialized.

Effective communication is communication that

creates specific effects in accordance with the goals

to achieve. The effect of communication is an

indicator or measure of communication success.

According to Effendi (2003: 318-319), some of the

effects of communication are 1. Cognitive effects,

namely effects related to mind, reason, or ratio. For

example, communication causes people who did not

have the knowledge, do not understand particular

things, or are not aware of something into the state

of knowing, understanding, or aware of something 2:

affective effects, namely effects related to feelings.

For example, people who were initially unhappy

become happy. 3. Conative effects, namely effects

that give rise to the intention to behave in a certain

sense in the sense that the word performs an action

or activity that is physical or physical.

4.6 Cognitive Effects

In general, the people of Manado city have good

knowledge about the environment. Communities or

communicants as recipients of messages from

communicators or the government gets knowledge

about maintaining the cleanliness of the

environment, disposing the garbage in its place and

disposing of garbage according to the hours set, and

getting knowledge about sanctions for violators of

the rules. The community is aware of these things,

both directly from government communication and

through the media, in this case, billboards or news in

print and online.

Based on the results of interviews with

informants, it is said that direct communication

carried out by government officials provided more

knowledge than communication through the media.

The credibility of communicators is believed to

influence people’s attitudes in maintaining

environmental cleanliness. Meanwhile, the use of

media is only slightly influential in changing

people’s attitudes in maintaining cleanliness. The

use of media is limited to giving knowledge to some

people without any concrete action. The contributing

factor is the media used to socialize the Solid Waste

Policy, namely billboards, are only a small amount

and are only displayed in certain places. This way,

the people just skim. Then, the message delivered is

straightforward. For example, do not litter, without

explaining the benefits of disposing garbage or what

the consequences of littering. Second, the news

reported in the daily newspaper, only contains news

about activities related to environmental hygiene or

only activities carried out by the City Government.

This is also the case in the use of social media, such

as Facebook. News about sanctions related to

littering has not affected society much so that it does

not cause a deterrent effect for the community.

4.7 Affective Effects

Affective effects are effects related to feelings. For

example, people who were initially unhappy become

happy. It is whether through communicating robust

waste policies, a person or community feel happy or

unhappy by throwing garbage in its place. Basically,

a person or community that has sufficient knowledge

about environmental conservation will feel happy

when government officials urge to dispose of

garbage in its place. Feeling happy will foster

someone’s love for the environment will foster

awareness in himself to always maintain the

cleanliness of the environment.

4.8 Conative Effect (behavior)

The role of knowledge is vital in shaping positive

attitudes and behavior in minimizing waste and

maintaining environmental cleanliness. In general,

the people of Manado have good knowledge about

the environment. However, this is not in line with

the community’s caring behavior that has not been

entirely good. Even though the intervention that was

carried out well by the city government of Manado

is currently much focused on increasing knowledge

and awareness. This means that there is a gap

between what people already know and their daily

behavior. The Manado City Government

intervention through the communication of policies,

both direct delivery by the government apparatus to

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the public about the appeal to maintain

environmental cleanliness, as well as the delivery of

messages through the media, is critical in increasing

public awareness of the importance of maintaining

environmental cleanliness. However, the

intervention carried out by the government through

policy communication has not entirely been able to

shape community behavior towards waste.

The results of the interview revealed that the

behavior of disposing trash was formed by several

factors, including habits from childhood, where the

role of parents is very influential in instilling the

behavior of throwing garbage. The habit of

disposing garbage and maintaining cleanliness that

has been instilled since childhood is very influential

in shaping a person’s behavior in minimizing waste

and maintaining cleanliness. Since childhood, they

grew with love for environmental cleanliness so that

they do not like to see rubbish scattered. In addition

to the role of the family in shaping a person’s

behavior towards waste, the role of educational

institutions is also essential, such as where the

school forms the character of discipline in

minimizing waste and maintaining cleanliness.

Another way it is by teaching students to dispose of

garbage in its place and maintain the cleanliness of

the surrounding environment.

5 CONCLUSIONS

To overcome the garbage problem in the city of

Manado in order to realize the city of Manado as a

clean and beautiful city, communication of the

Waste Management policy in the city of Manado

needs to be accomplished. The success of robust

waste management policies is determined by

communication factors, namely, communicators,

messages, media, communicants, and effects. The

communicator factor is determined by the level of

knowledge and the ability to communicate well by a

communicator (government apparatus).

Communicator credibility also influences the

communicant (community) in implementing the

policy. However, the strength and excellent

communication skills, as well as the credibility of

government officials in delivering messages, have

not been supported by the availability of appropriate

media as a means of disseminating information. The

media that are spread in the form of billboards is

only very few in number. Indeed, they are not evenly

distributed in the sub-districts of the city of Manado,

amounting to 11 sub-districts. As a consequence,

only a few people read the message about disposing

of garbage in its place, regulated garbage hours, and

sanctions for violators of the rules. Also, the

message conveyed to the community is very short,

so it has not been able to change the behavior of

most people in the city of Manado regarding waste

management. Even though the success of robust

waste policies is strongly supported by people’s

behavior in waste management. The results revealed

that the behavior of disposing garbage is formed by

several factors, including habits from childhood,

where the role of parents is very influential in

instilling the behavior of throwing garbage in their

children. The habit of disposing garbage and

maintaining cleanliness that has been planted since

childhood is very influential in shaping a person’s

behavior in minimizing waste and maintaining

cleanliness. Therefore it is recommended to establish

the behavior of disposing garbage early on children,

starting from family, school, and religious

institutions. It is also suggested to the government to

use more media (public service advertisements

through TV or social media) as an information

dissemination tool that is effective in providing

knowledge and using words or messages that can

touch people’s feelings to dispose of garbage in its

place and preserve the environment for the future of

the next generation.

ACKNOWLEDGMENT

This research is funded by Universitas Sam

Ratulangi, Manado, Indonesia

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