Countermeasure of destitute society's welfare in Manado conducted by implementing Neighborhood Based Establishment (PBL), with the program of increasing weak economic society's revenue. Policy implementer is Society Empowerment Board and Domain Government (BPMPK) and 504 heads of domain. Main focus question in this research is why the implementation of PBL had not affected yet onto the increasing of destitute society's welfare in Manado, and focusing at the independent aspect of policy implementation. The description of research focus is, what is meant by independent aspect are the technical independent complex components such as: (1) Territorial vast, amount and density of population, (2) diversity of target's behavior, (3) percentage of target groups, and (4) Neighborhood space of behavior change of the target wanted. Therefore, then the purpose of this study is to analyze the independent aspect of PBL policy implementation in Manado, by using qualitative research phenomenology method. The findings of this study revealed that, the implementer was confronted with the policy's independent aspect that concerned with: (1) Territorial vast, amount and density of population, various educational levels/degrees, revenues, social cultural condition, the increasing of population year by year, technical complexity in conducting communicational socialization because of the diverse abilities: the heads of domain understood the program, district facilitator, (2) The diversity of targeted groups behavior which tagged with the various level of education, ages, skills, genders, physical condition (deformity), social cultural and politics, (3) Percentage of target groups which is 20.427, the amount of unemployment 6.278, malnourished people are 226 in sum, pre-welfare family are 5010 in sum, the amount of population in sum is 417.483, with the density that reached 2.686 soul/per-square.., (4) Neighborhood space of behavioral change of the target wanted by a complexly difficult policy to be achieved since the objective of policy is very ideal compare to the realization of funds allocation.
