An Analysis of the Integration
of Climate Change Adaptation
in Disaster Risk Reduction Policy in Indonesia
THESIS
A thesis submitted in fulfillment of the requirements for the Master Degree on Humanitarian Assistance
from University of Groningen
By: Maria Goreti Ika Riana
S 1951831
Supervisor: Drs. J. C Coolsma (Rijkuniversiteit Groningen)
NETWORK ON HUMANITARIAN ACTION (NOHA) MASTER PROGRAM FACULTY OF ARTS
UNIVERSITY OF GRONINGEN 2010
TABLE OF CONTENTS ABSTRACT……….……vii PREFACE………...viii CHAPTER I INTRODUCTION ………... 1 1.1 Background……….... 1 1.2 Research Objective……….….. 6
1.3 Scope of the Research……….….. 7
1.4 Research Question……….... 7
1.5 Research Methodology………. 8
1.6 Thesis Outline………..…… 10
CHAPTER II THEORETICAL FRAMEWORK……… 12
2.1 Policy Study………... 12
2.2 Policy Integration………... 13
2.3 Disaster Risk Reduction ………..……….…. 14
2.4 Climate Change Adaptation………..………. 19
CHAPTER III DISASTER RISK REDUCTION AND CLIMATE CHANGE ADAPTATION IN INDONESIA’S CONTEXT ………. 22
3.1 The Development of DRR in Indonesia………... 22
3.1.1 History of DRR in Indonesia………... 22
3.1.1.1 International Framework……….. 23
3.1.1.2 National Framework………. 26
3.1.2 Key Actors in DRR………. 29
3.2 The Development of CCA in Indonesia………... 32
3.2.1 History of CCA in Indonesia………...… 32
3.3 Differences and Similarities of DRR and CCA concepts……….…. 36
3.3.1 Similarities……….... 36
3.3.2 Differences………...…. 37
3.3.3 The Overlap……….. 39
CHAPTER IV ANALYSIS OF NATIONAL ACTION PLAN OF DISASTER RISK REDUCTION POLICY IN INDONESIA………. 40
4.1 The Development of The National Action Plan of DRR (RAN-PRB)…….…….… 40
4.1.1 The Evaluation and Recommendation from RAN PRB 2006-2009…………. 40
4.1.2 The Development of RAN-PRB 2010-2012……….… 42
4.1.2.1 Prioritized Recommendation from RAN-PRB 2006-2009……….... 42
4.1.2.2 Legal Foundation Recommendation……….. 44
4.1.2.3 Lessons Learnt………...… 45
4.2 The Interrelation Between DRR and CCA Actors as Reflected on the Policy Documents………... 48
4.3 Operationalization of RAN-PRB 2010-2012 (National Action Plan of DRR)…..… 50
4.4 The DRR-CCA Project Evaluation by the Indonesian Red Cross……….… 60
CHAPTER V CONCLUSION AND RECOMMENDATION……… 64
5.1 Conclusion………. 64
List of Tables, Box and Figures
List of Tables
Table 1 Examples of Climate Change Impacts………...… 3 Table 2 Summary of the Differences of DRR and CCA……… 38 Table 3 The Interrelation of the Actors as Reflected on the Policies Documents….. 49
List of Box
Box 1 El Nino-Southern Oscillation……….… 5
List of Figures
List of Abbreviations
AMMDRR : Asia Ministerial Meeting on Disaster Risk Reduction BAKORNAS : Badan Kordinasi Nasional
(National Coordination Body)
BAPPENAS : Badan Perencanaan Pembangunan Nasional (National Development Planning Agency) BPBD : Badan Penanggulangan Bencana Daerah
(Regional Disaster Management Agency) BPPT : Badan Pengkajian dan Penerapan Teknologi
(Assessment and Application of Technology) BKTRN : Badan Koordinasi Tata Ruang Nasional Indonesia
(Coordinating Board of the National Spatial) BMKG : Badan Meteorology, Klimatologi dan Geofisika
(Meteorology, Climatology and Geophysics Body) BNPB : Badan Nasional Penanggulangan Bencana
(National Disaster Management Agency) CBAT : Community Based Action Team
CBO : Community Based Organization CCA : Climate Change Adaptation C3 : Climate Change Centre
DKP : Departemen Kelautan dan Perikanan (Ministry of Marine Affairs and Fisheries) DNPI : Dewan Nasional Perubahan Iklim
(National Council of Climate Change) DPRD : Dewan Perwakilan Rakyat Daerah
EWS : Early Warning System GHG : Greenhouse Gas
ICCAP : Indonesia’s Climate Change Adaptation Programme ICZM : Integrated Coastal Zone Management
IDNDR : International Decade for National Disaster Reduction
IFRC : International Federation of Red Cross and Red Crescent Societies IPCC : Intergovernmental Panel on Climate Change
LGU : Local Government Unit
LIPI : Lembaga Ilmu Pengetahuan Indonesia (Indonesian Institute of Science)
LULUF : Landuse, Landuse Change and Forestry MDG : Millenium Development Goals
MoE : Ministry of Environment MPDT : Multi Purpose Deep Tunnel
NAPACC : National Action Plan for Climate Change NGO : Non-Governmental Organization
Planas PRB : Platform Nasional Pengurangan Risiko Bencana (National Platform for Disaster Risk Reduction) PMI : Palang Merah Indonesia
(Indonesian Red Cross)
PNPM : Program Nasional Pemberdayaan Masyarakat
(National Programme for Community Empowerment) RAN-PRB : Rencana Aksi Nasional Pengurangan Risiko Bencana
(National Action Plan of Disaster Risk Reduction) Renas PB : Rencana Nasional Penanggulangan Bencana
RKP : Rencana Kerja Pemerintah (Government Work Plan)
RPJM : Rencana Pembangunan Jangka Menengah (Mid Term Development Planning)
RPJMN : Rencana Pembangunan Jangka Menengah Nasional (National Mid Term Development Planning)
UNDP : United Nation Development Programme UNFCCC : United Nation Convention on Climate Change
UN-ISDR : United Nation International Strategy on Disaster Reduction
ABSTRACT
Disaster Risk Reduction is an approach to reduce the impact of disasters on the community. The Government of Indonesia, through the National Disaster Management Agency (BNPB), has been developing this approach in its policy in the past five years. Yet the struggle to reduce the impact of disasters does not stop there. Climate change seems to be increasing the number of weather-related disasters in Indonesia. The United Nations Framework Convention on Climate Change (UNFCCC) has introduced a new approach called Climate Change Adaptation which is then adopted by the Government of Indonesia in its own policies. Sharing the same objective of building communities’ resilience to climate change related disasters, it is essential to integrate Disaster Risk Reduction and Climate Change Adaptation approaches. The integration of these approaches will work best in the policies which deal with current climate-related risk, in the context of ongoing sustainable development and disaster risk reduction. Therefore, the researcher aims to investigate how the Government of Indonesia, through the BNPB, is integrating Climate Change Adaptation into their Disaster Risk Reduction policy in order to build communities’ resilience. Furthermore, the researcher will analyze the operationalization and implementation of the policy, whether the policy is merely a document of good intentions or whether it is a comprehensive strategy for guiding Disaster Risk Reduction and Climate Change Adaptation actors in Indonesia. The BNPB has shown goodwill on responding the Climate Change Adaptation issue that becomes a trend in recent years. However the BNPB still has to work harder not only to integrate the Climate Change Adaptation into their national action plan but also to put the Disaster Risk Reduction strategy into practice.
Preface
My greatest gratitude for The Almighty who allowed me to complete my study and blessed me with His love through all times. I am enormously grateful to my supervisor Drs. J.C Coolsma for the advice, comments, directions and knowledge that make this work worthy and for the encouragement especially in my difficult times. I address my gratitude to all NOHA staff in Rijkuniversiteit Groningen, the Netherlands and Ruhr Bochum University, Germany, for invaluable knowledge in humanitarian assistance. I would like to express my gratitude to all colleague, especially my internship supervisor Bruno Haghebaert at the Netherlamds Red Cross for giving me precious opportunity to work in the organization and join the workshop in Ethiopia.
I would like to thank for all support from both my parents, brother, big family, lovely friends in Jogja, and Markus Drixler for all love, care and understanding my ups and downs. I want to express my gratitude to NESO Indonesia for all the facilitation to pursue my master programme. Last but not least, my endless love for all NOHA classmates in Groningen and Bochum for the colour you have given to my life during my stay in Europe.
Den Haag, December 2010
Maria Goreti Ika Riana
CHAPTER 1 INTRODUCTION
1.1 Background
The Disaster Risk Reduction concept, previously known as Disaster Reduction, has been introduced by the United Nations in 1994 in the Yokohama Strategies and Plan of Action for a Safer World (UN-ISDR, 1994). The meaning of Disaster Risk Reduction (DRR) can basically be defined as “a conceptual framework of elements considered with the possibilities to minimize vulnerabilities and disaster risks in a society to avoid (prevention) or to limit (mitigation and preparedness) the negative impacts of hazards, within the broad context of sustainable development” (UN-ISDR, accessed in July 10, 2010). Disaster Risk Reduction with elements of Disaster Prevention, Disaster Mitigation or Disaster Preparedness was considered a better approach compared with Disaster Response. A more pro-active approach is needed because humanitarian assistance, important as it is, only deals with the symptoms and consequences but does not reduce the risk of disaster itself. Not all disasters can be prevented but their impact-and the risk that underlie them- can be reduced. As a result lives can be saved, damage and loss limited and livelihoods protected. Three key arguments are used to justify the Disaster Risk Reduction (DRR) approach:
- Ethical: it is morally preferable to limit the impact of future disasters, rather than to respond when the disaster has already taken place.
- Financial: Disaster Risk Reduction is cost effective: one euro invested can save two to ten dollars in disaster response and recovery cost.
- Political: local and national government have the duty to protect their citizens, particularly in public places, such as schools, hospitals and government offices. (Haghebaert, Bruno).
vulnerabilities in combination with hydro meteorological, geological and man-made hazards contribute to an increase in disaster magnitude, intensity and frequency (UN-ISDR, 2005).
These risk phenomena are even worsened by the impacts of climate change which is considered as one of the exacerbating factors to various disasters which happened in these recent years. It has a variety of impacts: it is likely lead to a rise in sea level, more droughts, floods, heat waves, water shortages, and increased threats to human health (Red Cross Climate Centre: Preparedness for Climate Change). The increase of the number of climate related disasters has been a threat for human beings.
There are two approaches on how the world community is trying to solve the problem: mitigation and adaptation. Mitigation is focusing on the prevention of dangerous anthropogenic interference with the climate system and stabilization of greenhouse gas concentrations in the atmosphere. Meanwhile, adaptation is focusing on the reduction of the impacts of climate change that are happening now and to increase resilience to future impacts (UNFCCC, accessed 26 September 2010).
Both DRR and CCA are essential since we cannot prevent climate change altogether. New evidence shows that climate change has affected many sectors in Asia and that the crop yield in many countries of Asia has declined, partly due to rising temperatures and extreme weather events. The frequency of occurrence of heat stress and climate-induced diseases in Central, East, South and South-East Asia has increased with rising temperatures and rainfall variability. Observed changes in terrestrial and marine ecosystems have become more pronounced (Intergovernmental Panel on Climate Change, accessed 12 March, 2010).
Table 1: Examples of climate change impacts
Phenomenon and direction of trend Likelihood that trend occurred in later 20th century Likelihood of future trend
Examples of major impacts
Over most land areas, warmer and fewer cold days and nights, warmer and more frequent hot days and nights
Very likely Virtually certain • Increased agricultural yields in colder environments, decreased yield in warmer environments
• Increased insect outbreaks
• Effects on water resources relying on snow melt • Reduced mortality from cold exposure • Declining air quality in cities Over most land areas, more
frequent warm spells/heat waves Very likely Very likely • Reduced yields in warmer regions due to heat stress • Increased risk of bushfire
• Increased water demand, water –quality problems • Increased heat-related mortality, particularly for the
elderly, chronically sick, very young and socially isolated.
Over most areas, increasing frequency of heavy precipitation
Likely Very likely • Damage to crops • Soil Erosion
• Adverse effects on quality of surface and ground water • Water scarcity maybe relieved
• Increased risk of deaths, injuries, and infectious, respiratory and skin diseases
• Disruption of settlements, commerce, transport and societies due to flooding
• Pressure on urban and rural infrastructure • Loss of property
Increasing area affected by drought
Likely in many regions since 1970s
Likely • Land degradation • Lower yields, crop damage • Increased livestock deaths • Increased risk of wildfire
• Increased risk of food and water shortage • Increased risk of malnutrition
• Increased risk of water-and food-borne diseases • Migration
Increasing intensity of tropical cyclones
Likely in some regions since 1970s
Likely • Damage to crops and tress
• Increased risk of deaths, injuries and disease spread through water or food
• Post-traumatic stress disorder • Disruption by flood and high winds
• Withdrawal by private insurers of risk coverage in vulnerable areas
• Migration, loss of property Increased incidence of extremely
high sea levels
Likely Likely • Salinization of irrigation water and freshwater systems, and decreased fresh water availability
• Increased risk of deaths and injuries by drowning in floods
• Migration-related health effects
• Costs of coastal protection versus relocation • Potential for relocation of people and infrastructure • Tropical-cyclone effects
Source: Red Cross Climate Guide and IPCC 2007 Working Group II, Summary for Policy Makers
‘El Nino-Southern Oscillation’ (ENSO) is one of the climatic influences in Indonesia which provokes many extreme weather events every few years. The El Niño refers to changes in ocean currents in the Pacific Ocean, making them unusually warm. Meanwhile ‘La Nina’ is the opposite case when the currents are unusually cold. When the track winds over the Pacific is strong enough, the Western Pacific stays warmer than the Eastern Pacific. The current weakens in the absence of strong winds. The existence of a temperature gradient in the Equatorial Pacific in a weaker-than-normal track wind time allows the equatorial counter current to dominate, deepening the thermocline in the east, and submerging cold waters below the level of upwelling. Sequentially, surface temperature the Eastern Pacific rise the phenomenon known as El Nino. The opposite, cooling in the Eastern Pacific is known as La Niña (Linking Weather and Climate, accessed in 23 July, 2010). These events are linked to the ‘Southern Oscillation’ which refers to changes in atmospheric pressure in the southern hemisphere. Taken together they are called the ‘El Nino-Southern Oscillation’ (ENSO). Generally speaking droughts will come more often at times of El Nino while floods caused by heavy rainfall will occur more at times of ‘La Nina’. Over the period 1844-2006 out of 43 droughts, 37 were related with an ‘El Nino’.
Box. 1 El Nino-Southern Oscillation (UNDP Indonesia, 2007)
In many examples, the potential increase in extreme weather events due to climate change raises the level of vulnerability to an alarming level. Therefore, the increasing hazards due to climate change should be treated and analyzed in a way which is better integrated into broader efforts to reduce the risk of disasters (Aalst, 2006, p.5). Certain weather patterns are clear enough to inform risk reduction efforts. Therefore, there is a need for a greater coordination between Disaster Risk Reduction and Climate Change Adaptation community:
“At the same time, the disaster risk community has not fully incorporated climate change dimensions and information on climate impacts into its work. The risk of more complex, frequent, intense or unpredictable extreme weather events associated with global temperature increases, changing precipitation patterns and sea-level rise, coupled with both gradual and non-linear changes to ecosystems and natural resources, suggests the need for a renewed focus on the ways that disaster risk reduction and adaptation can influence the context in which climate change occurs.” (qtd. in World Disaster Report 2009).
According to the Red Cross Climate Centre, in practice, adaptation will work best if it is integrated into policies, which deal with current climate-related risk, in the context of ongoing sustainable development and disaster risk reduction (Red Cross Climate Centre, 2007). As mentioned before, adaptation to climate change will work best if it is integrated into national and regional policies for risk reduction. Therefore the object of this study is to analyze the extent of CCA integration into DRR policy.
1.2 Research Objective
1.3 Scope of the Research
This research is limited to Indonesia as a state which has legal authority to make policies at the national level. Furthermore due to limited budget and time, the research is conducted at long distance, reviewing policies of Disaster Risk Reduction (DRR) and Climate Change Adaptation (CCA) on the basis of the available documents. Indonesia is one of the countries which are working on DRR and CCA. Therefore, it is interesting for the researcher to examine the State’s efforts to deal with the CCA issue from the DRR point of view. The Indonesian government will be considered as a policy maker. BNPB (National Coordinating Agency for Disaster Management) is one the main actors in the Indonesian government responsible for working in the DRR sector. The main task and function of the National Coordination Agency for Disaster Management is to be the leading agency in disaster management activities, including disaster prevention, emergency response, rehabilitation and reconstruction. In addition, it is their task to establish the standard procedures in disaster management based on disaster management law and regulation, to establish a disaster management agency on a provincial level, and to coordinate the comprehensive and integrated disaster management activities (BNPB Indonesia, accessed in July 10, 2010). In addition to BNPB, the other CCA issue related actors examined will be limited to other departments, such as BMKG (Meteorology, Climatology and Geophysics Board), Department of Environment, Department of Forestry, Department of Agriculture and Department of Health.
1.4 Research Question
The abovementioned leads to several questions on the integration of the two approaches. How does the Indonesian community deal with the issue of climate change which is increasing the intensity and the frequency of disasters? How should knowledge of climate change to enhance disaster risk reduction? How is the Indonesian government responding to the needs of communities experiencing disasters? This leads tothe following research question:
• To what extent is the Indonesian Government, represented by National Agency for
The main question will be broken down into sub-questions as follows:
a. How is the DRR and CCA policy being developed?
b. Who is BNPB as the actor responsible in DRR policy and who are the actors responsible in CCA issue?
c. What are the differences and similarities between DRR and CCA? d. How is the BNPB developing the National Action Plan of DRR?
d. To what extent is the BNPB coordinating with actors who are responsible for CCA issues and to what extent is BNPB integrating the CCA issues in their work at the national level which is reflected in National Action Plan of DRR?
1.5 Research Methodology
a. Data Collection
To be able to collect comprehensive data, multiple data collection methods will be utilized. The methods include desk study of secondary collected data. Desk study will be conducted through examination and exploration of the collected literature. The literature review will be divided into two parts:
1. Literature review for developing the theoretical base will be conducted using available literature and other text materials which are relevant to the research questions such as: books, journals, articles, working papers, power point presentations, newspaper, unpublished materials and other sources from the Internet.
b. Data Analysis
The strategy chosen to conduct the research will be qualitative research which is mainly based on the literature review. This research will look at the existing facts and collected documents and will produce a descriptive information or knowledge. Anderson and Fitch state that qualitative research emphasizes on inductive and interpretive methods which are applied to the everyday world, which is seen as subjective and socially created. It also places emphasis on description and explanation more than measurement and prediction (qtd. in Jablin, p. 162).
Based on academic understanding, the case of Disaster Risk Reduction (DRR) and Climate Change Adaptation (CCA) in Indonesia and on the theory of policy study, the research findings will provide answers to the research questions. Furthermore, the methodology used to analyze the data will prioritize description and explanation of the instrumental documents. The researcher will take the National Action Plan for Disaster Risk Reduction as the main instrument to be analyzed. Besides the main instrument, there will be some complementary instruments also used, such as the National Plan of Disaster Management and the National Plan on Adaptation to Climate Change. The following 5 steps will be taken in order to answer the research question:
1. Elaboration of the development of Disaster Risk Reduction policy in Indonesia and description of the BNPB as the leading actor in DRR.
2. Elaboration of the development of Climate Change Adaptation policy in Indonesia and description of the CCA key actors.
3. Description of the similarities and the differences of the concepts in order to be able to integrate them.
4. Description of the development of National Action Plan of Disaster Risk Reduction.
4. Analysis on how the BNPB spells out the Climate Change Adaptation issue in the Disaster Risk Reduction policy using the National Action Plan of Disaster Risk Reduction 2010-2012. The researcher will analyze whether the CCA issue integrated in the DRR policy is sufficiently concrete to be put into practice.
1.6 Thesis Outline
The research questions will be answered in five chapters. The first chapter will describe the problem and causes of climate change. It will examine the case of Indonesia as one of developing countries vulnerable to the worsening, climate change related, extreme weather events. Thus, the Disaster Risk Reduction community in Indonesia has to respond to this challenge at the national level by introducing the Climate Change Adaptation concept in their work. Furthermore, this chapter will describe the methodology that will be used for this research. The second chapter will describe the theoretical framework as the basis of the discussion. The theoretical framework itself will cover the literature of policy study and the elements within the policy study, the keyword which is ‘integration’ as well as Disaster Risk Reduction (DRR) and Climate Change Adaption (CCA) global concepts.
The third chapter will elaborate upon Disaster Risk Reduction and Climate Change Adaptation in Indonesia’s context. This part will cover the description of the history and development of Disaster Risk Reduction policy. The policy documents found will be presented in this chapter which then will be followed by the presentation of BNPB as the key actor of DRR in Indonesia. In addition, it will also cover the development of Climate Change Adaptation issue and how Indonesia is adopting the international framework into national policy. The key actors of CCA will be identified in this chapter. Following the description of DRR and CCA in Indonesia context, this chapter will also present the differences and similarities of DRR and CCA concepts in order to get understand in the area of integration.
development. Secondly, based on the actors identified, the researcher will use the document to analyze the interdependencies between the actors involved. And lastly, the operationalization of the National Action Plan will be analyzed by reviewing all activities presented and to which extent the climate change adaptation issue is taken into account in the activities.
CHAPTER II
THEORETICAL FRAMEWORK
This chapter is intended to provide a theoretical framework for the research. In this chapter the researcher will explain what is meant by policy study and what the elements in a policy study are. Furthermore concepts of integration and policy integration are defined. In addition, the disaster risk reduction and climate change adaptation will be worked out.
2.1 Policy Study
The theoretical framework is built to further explain the definition of concepts being used in this research. The framework will present the definitions of policy analysis or policy study and the elements of policy studies such as policy, policy cycle, public policy, social network analysis and policy process.
According to Dye, policy studies is the exploration and clarification of (1) what policies governments pursue, (2) why governments pursue them, and (3) what the consequence of the policies are for the society (qtd. in Speckhard, p. 509). Kristol stated that policy studies should be considered not as scientific attempts to solve problems, but rather as the development of knowledge for helping us to cope better with conditions (qtd. in Speckhard, p. 504). In terms of definition, Speckhard defines policy studies as “research that relates to determining the causes and effects of alternate governmental decisions with regard to ways of handling various problems that are generally considered to require collective rather than individual action” (Speckhard, p. 503).
Other elements of policy studies are social network analysis which is defined in this paragraph. Public policy is developed and implemented in social networks. Wasserman and Faust define social network analysis as a method to understand the network structure through the description, visualization and modeling of social network data which consists of various elements (qtd. Duijn, K Vermunt, p.1). Social network data can be collected in various ways such as interviews, observation and secondary sources (Duijn, K Vermunt, p.1).
Public policy is formed, adapted and implemented in a never-ending process that can be seen as a cycle. May and Wildavsky define the policy cycle as a dynamic and interdependent set of actions concerning ideology formation, agenda setting, policy design/adoption, implementation and evaluation. A particular level (or combination of levels) of political judgment is reflected in each sub process (qtd. in Fischer and Forester, 82). In the policy process there are multiple actors involved because it is presumed that no individual actor will be able to unilaterally impose their desired solution onto others. Rather, some forms of cooperation and coordination between parties are needed because the actors are interdependent (Enserink, p.79)
2.2 Policy Integration
The word ‘integration’ is a keyword in this research. Therefore, to clarify the meaning of this term the word ‘integration’ will be defined in this theoretical framework. In addition, the more specific term ‘policy integration’ will be elaborated upon to give a more comprehensive definition of the terms used in this research.
According to Underdal, integrated policy is one where “all significant consequences of policy decisions are recognized as decision premises, where policy options are evaluated on the basis of their effect on some aggregate measure of utility, and where the different policy elements are in accord with each other “(qtd. in Persson, p.11). Meanwhile, policy coordination, according to Peters, refers to “the need to ensure that various organizations…charged with delivering public policy work together and do not produce either redundancy or gaps in service” (qtd. in Persson, p.12). Those two arguments about integration and coordination of the policies emphasize cooperation and working together within an institution in order to avoid gaps. Thus, it can be concluded that the key meaning of ‘integration’ is how institutions work together and coordinate themselves so as to be able to deliver a better service. In regards to integration of Climate Change Adaptation into Disaster Risk Reduction Policy, coordination and cooperation among the actors will be very necessary in order to achieve the shared objectives.
Integrating CCA within DRR policy can be addressed within the DRR national policy cycle –at the policy formulation stage; the planning stage; the resource allocation stage and at the programming stage (OECD, p.69). However a clear explanation of climate risks and the need for adaptation within relevant national policies will be necessary. Incorporating the keywords ‘climate change’ and ‘adaptation’ may help to enhance the importance of recognizing climate change and its impact and the need to adapt (OECD, p.69).
2.3 Disaster Risk Reduction
Disaster Risk Reduction (DRR) will be explained in this theoretical framework to give a clearer illustration of the global picture. Therefore, it will provide a clearer explanation of why the disaster risk reduction policy exists.
p. 17).
Disaster Risk Reduction is defined as a conceptual framework of elements considered with the possibilities to minimize vulnerabilities and disaster risks throughout a society, to avoid (prevention) or to limit (mitigation and preparedness) the adverse impacts of hazards, within the broad context of sustainable development (UN-ISDR, accessed in July 10, 2010).
The conceptual framework is being translated into strategies which include vulnerability and risk assessment and also a number of institutional capacities and operational abilities. The essential features of disaster reduction strategy are the assessment of the vulnerability of critical facilities, social economic infrastructure and the use of different types of scientific, technical and other skills (ISDR, p.22). The key concept of the strategy is the crucial involvement of local community action motivated by cooperation and shared responsibility to build a safety culture. Disaster risk reduction needs to be viewed as an investment in society’s culture instead of an expense (ISDR, p.22).
There are several aspects in disaster risk reduction strategies:
• Disaster mitigation – Structural and non-structural measures taken to limit the adverse
impact of natural hazards, e.g., planting mangroves to reduce the risk posed by tidal surges.
• Early warning – The provision of timely information to enable people taking steps to
reduce the impact of hazards. Early warning is typically multi-hazard and requires ownership of, and participation by, communities and other stakeholders, e.g., access to information by local people concerning an approaching typhoon or tropical storm.
• Disaster preparedness – Measures that help to ensure a timely and effective ‘first line’
of response, e.g., community action teams prepare a contingency plan and response teams to respond for incoming disaster.
• Recovery – Decisions and actions taken after a disaster with a view to restoring or
• Support for livelihoods – Projects that strengthen or diversify livelihoods that enable
individuals or households to develop strategies to reduce risk, e.g., home gardening can improve nutrition and increase reserves in a time of drought
The figure presented above describes the main context and activities involved in disaster risk reduction, as is seen in the bigger blue box. These are elements to be the focus of any DRR strategy. The definitions of some of the elements will be presented below and the definition for additional terms can be found in Annex 1.
Hazard: A potentially damaging physical event, phenomenon and human activity, which may cause the loss of life or injury, property damage, social and economic disruption or environmental degradation.
Vulnerability: A set of conditions and processes resulting from physical, social, economic and environmental factors, which increase the susceptibility of a community to the impact of a hazard.
Risk Assessment/Analysis: A process to determine the nature and extent of risk by analyzing potential hazards and evaluating existing conditions of vulnerability/capacity that could pose a potential threat or harm to people, property, livelihoods and the environment on which they depend.
Coping capabilities/ Capacity: The manner in which people and organizations use existing resources to achieve various beneficial results during unusual, abnormal and adverse conditions of a disaster event process. (ISDR, p.24)
actors in order to reach the same directed objectives. Therefore, it can be concluded that Disaster Risk Reduction can be seen as a public policy.
2.4 Climate Change Adaptation
Climate Change Adaptation has two components: Climate Change and Adaptation. UNFCCC (United Nations Framework Convention on Climate Change) defines Climate Change as a change of climate which is attributed directly or indirectly to human activity that alters the composition of the global atmosphere and which is in addition to natural climate variability over comparable time periods (UNFCCCBali, accessed in August 19, 2010). Adaptation is defined by IPCC as an adjustment in natural or human systems in response to actual or expected climatic stimuli or their effects, which moderates harm or exploits beneficial opportunities. Various types of adaptation can be distinguished, including anticipatory and reactive adaptation, private and public adaptation, and autonomous and planned adaptation (qtd. in Levina, Tirpak, p. 6).
The danger of disaster resulting from climate change is twofold. Firstly, individual extreme events will devastate vulnerable communities. If the growth of population is factored in, more people may be at significant risk. Those events together could potentially cause the most significant danger to human development. Secondly, climate change will aggravate the current complex problems which developing countries face and will contribute to a reverse in development progress for many people, which might be even greater than has ever been experienced before (IFRC, p. 95). Therefore, it is important to understand the impact of climate change on communities in order to identify what kind of adaptations will be undertaken.
assessment must address the likelihood of autonomous adaptation (see figure 1.2) (IPCC website, accessed 26 September, 2010).
Figure. 2 The places of adaptations in the climate change issue
There are six reasons according to Burton for why we have to adapt to climate change: 1. Climate Change cannot be totally avoided
2. Anticipatory and precautionary adaptation is more effective and cheaper than forced and emergency adaptation.
3. Unexpected events can happen anytime because climate change maybe more rapid and more pronounced that current estimates suggest.
4. Better adaptation to climate variability and extreme events can gain immediate benefits.
5. Immediate benefits can be gained also by removing maladaptive policies and practices.
6. Future benefits can be resulted from climate change because it brings opportunities as well as threats (qtd. in IFRC, WDR 2009)
CHAPTER III
DISASTER RISK REDUCTION AND CLIMATE CHANGE ADAPTATION
IN INDONESIA’S CONTEXT
The subject of this chapter is the development of Disaster Risk Reduction and Climate Change Adaptation policies in Indonesia. To get a clearer picture of the development of DRR and CCA policies, it is necessary to know the history of DRR and CCA in Indonesia. Policies develop in a network of policy actors. This will be the second subject of this chapter. In addition, the similarities and differences of both concepts will be elaborated, which will lead to the observation of a possible overlapping between the two fields.
3.1 The Development of Disaster Risk Reduction in Indonesia
3.1.1 History of DRR in Indonesia
It was described in the previous chapter that Indonesia is one of the disaster prone countries in the world that the biggest volcano eruption in the World occurred in Indonesia. In 1815, the Tambora mountain in the Nusa Tenggara Barat province erupted and spread 1.7 tons of ash and volcanic materials across the region. In 1883, the Krakatau volcano erupted. This eruption was estimated to have had 200-megaton TNT power. In more recent years, a deadly disaster happened on December 26, 2004. A strong earthquake, triggering a tsunami, hit the Aceh province on Sumatra Island. In Indonesia alone, the earthquake and the tsunami killed 165,708 people and the material damage was estimated at more than 48 billion rupiah (4,8 million USD) (Renas-PB, p.1).
In response to the increasing hazards and complex disasters, Indonesia needs an integrated, coordinated and comprehensive plan for disaster management. The old paradigm in disaster management in Indonesia focused on disaster response and there was little understanding of disaster risk reduction in development intervention. Therefore, by referring to international policy framework on disaster risk reduction, Indonesia is trying to change the paradigm from being responsive to being more preventive in order to build a more integrated, coordinated and comprehensive disaster risk reduction policy. In the following sub-chapter, the researcher will elaborate on the history of DRR policy development by describing the international framework of DRR, which is followed by the national framework of DRR as the foundations of DRR policy in Indonesia.
3.1.1.1 International Framework
For more than 2 decades, the United Nations has been actively calling on states all over the world to prioritize the integration of disaster risk reduction into their national development plans. Certain international and regional resolutions and frameworks became the foundation on which states developed their DRR policy. For Indonesia itself, there are four resolutions and frameworks which are referred to for DRR policy.
1. The United Nations Resolution
In July 30, 1999, Ecosoc (Economy and Social) Council of United Nations published a Resolution No. 63 1999 which stipulated that the 1990 decade was the International Decade for Natural Disaster Reduction (IDNDR). This resolution recommends that the UN focuses on the implementation of DRR international strategy. Two main targets of DRR international strategy are:
- Building community’s resilience to the impacts of natural, technological and environmental disasters.
As the follow up of the resolution, the UN General Assembly published Resolution No. 60/195 in December 21, 2001 which stipulated International DRR day. In addition to that in December 22, 2005 the UN published Resolution No 60/195 about International Strategy for Disaster Reduction (ISDR). ISDR is a global approach to involve community in reducing the impact of disasters.
2. Yokohama Strategy
The Yokohama Strategy for a Safer World; Guideline for Natural Disasters Prevention, Preparedness and Mitigation and its Plan of Action , adopted in 1994, has given a guideline for reducing risks and the impact of disaster. Yokohama Strategy emphasizes the importance of disaster risk reduction efforts, which is enhancing a more pro-active approach in giving information, motivating and involving communities. Several challenges were identified in the evaluation of Yokohama Strategy, however those challenges are still relevant to be used as references for the development of framework of action in 2005-2015. Those challenges are;
- Management, institution, legal and policy framework.
- Risks identification, analysis, monitoring and early warming. - Knowledge and education development.
- Risk Reduction
- Disaster preparedness and effective recovery. 3. Hyogo Framework for Action
The World Disaster Risk Reduction Conference was conducted in Kobe, Hyogo, Japan in 18-22 June, 2005. The conference contributed a Framework for Action 2005-2015 to build community resilience towards disasters.
This conference adopted five priorities:
- Ensure that DRR becomes a national and local priority with a strong institutional basis for implementation
- Identify, analyze and monitor disaster risks and enhance early warning
- Use the knowledge, innovation and education to build culture of safety and resilience in all levels
- Strengthen disaster preparedness for effective response in all levels
Several countries including Indonesia have adopted the Hyogo Framework for Action.
4. Beijing Framework for Action
The first Asian Conference on Disaster Risk Reduction was conducted in Beijing, China in 27-29 September, 2005. This conference was attended by 385 participants from 42 countries in Asia and South Pacific, 13 UN bodies and international organizations in order to implement the result of Hyogo Framework for Action. The conference produced an agreement of Beijing Framework for Action for DRR in Asia. Regional institutions that have relevant roles with DRR are called on to implement certain tasks based on their respective mandates, priorities and resources. The tasks agreed in the Beijing Framework for Actions are:
(1) Enhancing national programmes, including technical cooperation, capacity building, methodology development, standards for monitoring and risk and vulnerability assessment, information exchange and effective resources mobilization to support the national and regional implementation of the framework.
(2) Conducting and publishing the baseline survey in regional and sub-regional levels on the DRR status based on the identified needs and their mandates.
(3) Conducting coordination and publishing a regular analysis on the progress in the region, the constraints and the needed support
(4) Building and strengthening the existing regional cooperation to do research, training, education and capacity building in DRR
(5) Supporting the regional mechanism and capacity development for early warning, including tsunami.
3.1.1.2 National Framework
Indonesia has a large area as a country and it lies on the equator and between two oceans and two continents. The nature condition of Indonesia obtains some potential hazards in geographical, geological, hydrological and demographical aspects. This condition made Indonesia to be a disaster prone area, which needs a systematic, integrated and coordinated strategic plan. The National Disaster Risk Reduction policy of Indonesia is trying to fulfill the needs of the community to a well-integrated, -coordinated and systematic strategic plan. There are six national legal foundations for disaster risk reduction policy:
1. Law No. 25 Year 2004 on the System of National Development Plan. The system of national development plan has several purposes as follows;
a. Establishing coordination, integration, synchronization and synergy between actors at national and local levels
b. Ensuring correlation and consistency between planning, budgeting, implementing and monitoring
c. Increasing the community’s participation
d. Ensuring the effective, efficient and sustainable use of resources
The DRR plan has to follow the rules and regulations of the national development plan system.
2. Law No. 24 Year 2007 on Disaster Management
Disaster Management is part of national development. Law No. 24 Year 2007 on Disaster Management regulates how to respond to a disaster in different phases: pre-disaster, during disaster and post-disaster. The following regulations are included in the law:
a. Disaster Management is the responsibility of the national and local government. The actions taken by the government should be well coordinated, planned, integrated and comprehensive.
c. Disaster Management is conducted based on human rights for basic needs, social protection, education and skills as well as on community participation.
d. Disaster Management Activities are being conducted by giving large opportunities to NGOs (Non-Governmental Organizations) and INGOs (International Non-Governmental Organizations) to work together with the government.
e. The monitoring of Disaster Management activities is done by national and local government as well as the communities in each phase of disaster.
f. Government is responsible for conducting disaster risk reduction activities and integrating it into the current development programme.
3. Law No. 6 Year 2007 on Spatial Planning
The aim of spatial planning law is to harmonize the natural environment and the artificial environment so that there will be integration over the use of resources. It is supposed to protect the spatial planning function and prevent negative impacts on the environment. Implementation strategies in conducting the spatial planning as part of disaster risk reduction are:
a. Implementing the zone regulation consistently which is part of the detail plan of spatial planning.
b. Emphasizing the control of spatial use in a systematic way by making the zone regulation, permit, incentive and disincentive grant and sanction grant.
c. Strict and consistent law enforcement to create a well-regulated spatial planning 4. Law No. 27 on Coastal Management and Small islands
This law regulates disaster risk reduction on structural and non-structural disaster management of coastal areas and small islands. Article 56 to 59 regulate that the disaster risk reduction should be integrated into the coastal areas and small islands management planning, which should involve the national and local government as well as community’s participation. The disaster mitigation should also consider social, economic and environmental aspects.
5. President Regulation No. 21 Year 2008 on Disaster Management
as well as a district action plan for DRR. This national action plan is created in a comprehensive and integrated way, in a forum, involving governments, non-government and private sector elements coordinated by BNPB.
6. National Plan of Disaster Management
The establishment of a national plan for disaster management is regulated explicitly in Law no. 24 2007 and Government Regulation No. 21 Year 2008. Disaster Management Planning covers:
a. Introduction and analysis of hazards
b. Understanding of community’s vulnerability c. Analysis of potential impacts of disaster d. Options of disaster risk reduction
e. Mechanism on disaster preparedness and disaster risk reduction f. Allocation of available roles, competence and resource
The DRR is part of disaster management planning; therefore the national action plan of DRR is a more detailed breakdown of Disaster Management Planning.
7. National Action Plan for Disaster Risk Reduction
mandated by Law No. 24 Year 2007 on Disaster Management and President Regulation No. 21 Year 2008 on Disaster Management which is also hierarchical with National Plan of Disaster Management.
The evaluation of the implementation of the National Action Plan of DRR 2006-2009’s shows some priorities on the new documents. Those priorities are developed based on the risks analysis of the hazards, vulnerabilities and capacities. The analysis will give an illustration for the next three years which will be the basis of the development of the National Action Plan 2010-2012.
The National Action Plan of DRR is a comprehensive illustration of action plans of all related stakeholders at the level of government, NGOs, international communities and private sectors. The action plan is provided in a matrix and will be described based on five priorities of the Hyogo Framework for Actions, which will be worked out in seven main programmes and 33 prioritized activities.
The National Action Plan of DRR is a technical and operational document that will be the guideline of the non-government actors who are committed to supporting the government in DRR activities. The annual implementation and evaluation will be conducted by the State Ministry of National Development Plan, National Agency of Disaster Management (BNPB) and the National Platform for DRR as the non-government representative forum. The National Action Plan’s source of funding is from the National Budget, private sectors, and international donor organizations.
3.1.2 Key Actors in Disaster Risk Reduction
1. National Agency for Disaster Management (BNPB)
The main roles of BNPB are:
a. As a guide and coordinator in disaster management which covers disaster prevention, emergency response, rehabilitation and reconstruction.
b. Determining a standardization of relief delivery based on the law c. Informing disaster management activities to communities
d. Reporting the disaster management activities to President once a month in normal situations and very regularly in an emergency situation
e. Making use of the national and international fund and being accountable for using it f. Being accountable for spending the national budget
g. Performing other tasks regulated by relevant laws
h. Creating a guide to establish a district Agency of Disaster management
BNPB is lead by the Minister Coordinator of Social Welfare as the head of the organization. There are two elements in the organization, the Disaster Management Director and the Disaster Management Implementer. There are several elements of government who represent the departments as the Disaster management director element. Those departments are:
- Ministry Coordinator of Social Welfare - Department of Home Affairs
- Department Social
- Department of Public Works - Department of Health
- Department of Finance - Department of Transportation
- Department of Energy and Mineral Resources - Department of Police
- Indonesian Army
- Experts and professionals
- Coordinating the disaster management implementation
- Being the commander of the disaster management implementation - Implementing the activities themselves
The structure of the organization consists of: - Main secretariat
- Deputy of Prevention and Preparedness - Deputy of Emergency Response
- Deputy of Rehabilitation and Reconstruction - Deputy of Logistics and Equipments
- Main Inspectorate
- Technical Implementation Unit
This National Agency of Disaster Management also has responsibility to establish a District Agency of Disaster Management in 33 provinces in Indonesia. This is an on-going process now that 23 provinces have a District Agency already, so that their coordination structure can function well.
2. National Platform for DRR (PLANAS PRB)
The National Platform for Disaster Risk Reduction is a forum which was established to facilitate and support the cooperation among stakeholders in DRR in Indonesia. This national forum is trying to accommodate all stakeholders related to disasters as well as synchronizing various DRR policies, programmes and activities at national level. This forum is aimed to reach the objective of Indonesian DRR on building a community’s resilience.
The National Platform has an advocacy function in disaster risk reduction at all levels. It becomes a cross-actors network at national level, which facilitates the DRR knowledge sharing, programmes and activities conducted by stakeholders. It also functions to monitor the activities to be in line with Hyogo Framework for Action. Furthermore, the National Platform can encourage the adaptation research, programmes implementation and Hyogo Framework commitment strengthening as well as implement the consensus and conduct consultation at national or local level (National Platform for DRR, accessed in October 13).
The National Platform is being challenged to ensure that the forum can effectively function as expected as well as urge the active members of the forum to implement the disaster risk reduction strategies in Indonesia. As a newly established forum, it is necessary to build a coordination mechanism with other forums. National Platform should also prioritize the working programmes, including mainstreaming disaster risk reduction into long-term development plan.
3.2 The Development of Climate Change Adaptation in Indonesia
3.2.1 History of Climate Change Adaptation in Indonesia
As the biggest archipelagic country in the world, Indonesia has a huge number of islands and a vast, densely populated, coastline. 65 percent of the population of Java Island lives in the coastal region. This makes it particularly vulnerable to climate change impacts such as sea level rise. Indonesia has an extensive amount of forest yet at the same time faces a threat of forest damage and is prone to natural disasters and extreme weather events. As a developing country, Indonesia does not have capacity to cope with the impact of the climate change like developed countries. Thus it will have a significant impact on the development process of the country. Therefore it is necessary to address climate change by having national strategies for social engineering development directed at a systematic, planned social change to better prevent disasters and reduce the impact on society and ecology.
makes Indonesian Government responsible for real efforts to fight the climate change impacts. The Kyoto Protocol is an international agreement, which is related to the UNFCCC. The main characteristic of the Kyoto Protocol is that it sets binding targets for 37 industrialized countries and the European community for reducing greenhouse gas (GHG) emissions. Like the Convention, the Kyoto Protocol is designed to assist countries in adapting to the negative impacts of climate change. It also facilitates the development and deployment of techniques, which can help increase a community’s resilience to the impacts of climate change.
Various actions have been initiated to respond to the increasing climate risk by developing a series of policy initiatives. Task forces within different actors in the government sectors and national level committee on climate change adaptation have been established. Ministry of Public Works initiated an important meeting which was organized by Indonesia Water Partnership; the International Joint Workshop on water and Climate Workshop, 23-24 May 2007. The meeting has produced a report on Climate Variability and Climate Changes and Their Implication to Indonesia by Intersectoral Working Group. Indonesian Government also launched National Action Plan Addressing Climate Change (NAPACC) at the occasion of COP Meeting in Bali in 2007.
After the National Action Plan Addressing Climate Change was established, the ministry of National Development Planning/National Development Planning Agency presented a draft document of the National Development Planning Response to Climate Change: Long Term and Medium term 2004-2009: National Development Planning Climate Change Mitigation and Adaptation Programmes. This document covers initiatives in the forestry, health, water resources, transportation, energy, electricity/power, housing and settlements sectors. In 2007, the United Nations for Development programmes (UNDP) also published a document entitled: The Other half of Climate Change. This document discusses the climate change issues in terms of threats to livelihoods, health, food security and water sectors. The UNDP also supported the national government in developing the Indonesia’s Climate Change Adaptation Programmes (ICCAP) that was drafted in December 2007. The programme consists of the following principles:
- Opting for no-regrets measures and addressing climate variability as the entry point.
- Ensuring participatory approach in developing the CCA agenda
- Adjusting the currently ongoing and planned activities and programmes for possible adaptation measures to the climate risks
- Institutionalizing and utilizing effectively the knowledge based on the climate variability to manage current and future risks in better way
- Harmonizing policies and programmes in a decentralized and multi-sectoral setting
- Contributing to embedding climate risks and opportunity management into development planning in the framework of MDG
- Ensuring consideration of climate change and opportunities in development decisions and investment to improve socio-economic resilience of sectors and communities to climate change and climate variability
change policy and climate change adaptation to respond to the extreme climate impacts such as urban floods and landslides, failure of crops harvesting due to changing climate and the more frequent incidents of epidemic water borne diseases.
3.2.2 Key Actors in Climate Change Adaptation
The State Ministry of Environment (MoE) is a central authority in environmental sector in Indonesia. As the central authority, this ministry has overall responsibility for environment issues including the formulation of policy, strategy and legislation as well as establishing and standardized quality. MoE is also responsible in supervising and supporting provincial and local authorities in the environmental management and the national policy and regulation implementation (Ministry of Environment, accessed in October 13). National Action Plan for Addressing Climate Change is one of the policy products established by the MoE. In this action plan the MoE is cooperating with several key actors in Indonesian government in order to implement the activities. The key actors in the national plan are divided into seven sectors, where in one sector several actors will collaborate and cooperate for the implementation.
The following description will illustrate the actors responsible in every sector: 1. Water Resource
The responsible institutions for this sector are: State Ministry of Environment, Department of Public Works, State Ministry of Research and Technology, National Coordination Body for Survey and Mapping.
2. Agriculture
The responsible institutions are: Department of Marine Affairs and Fisheries, State Ministry of Environment, Department of Public Works, Department of Agriculture, State Ministry of Research and Technology.
3. Marine, Coastal and Fisheries
4. Infrastructure
The responsible institutions are: Department of Public Works, State Ministry of Environment, and Ministry of Housing
5. Health
The responsible institutions are: Department of Health and State Ministry of Environment 6. Forestry and Biodiversity
The responsible institutions are: State Ministry of Environment, Department of Forestry and National Coordination Body for Survey and Mapping
7. Cross Sector
The responsible institutions are: State Ministry of Research and Technology, Ministry of Interior, State Ministry of Environment, Department of Public Works, Geophysical, Meteorological and Climate Agency, national Aeronausfics and Space, National Coordination for Investment, national Coordination Body for Survey and Mapping, Department of Energy and Mineral Resources (NAPACC).
3.3 Similarities and Differences of DRR and CCA concepts
3.3.1 Similarities
DRR approach is trying to influence development decision-making at national and regional level and protect the aspirations of the development from environment related risks. Likewise CCA needs to re-design and re-shape development, social and economic practices to be able to respond effectively to new or anticipated environmental changes.
In terms of non-structural measures to increase the awareness of the community, DRR and CCA also share similar methods, practices and mechanism of community participatory. The non-structural measures are also related with training and transferring knowledge for awareness rising.
3.3.2 Differences
Disaster Risk Reduction addresses a larger range of hazards than Climate Change Adaptation. Climate related hazards or hydro-meteorological hazards are representing only one type of hazards that disaster management community has to deal with. The larger range of hazards that DRR is meant to deal with includes nature-induced (biological, geological and hydro-meteorological) and human-induced (environmental degradation ad technological) hazards.
In terms of time scale, DRR tends to focus on reducing risks based on previous experiences, while the adaptation is more to deal with the scientific prediction on how the climate change will have impacts on particular areas over a longer time period. Consequently DRR is more likely to struggle to integrate risks that have yet to be experienced, while this is a core component of CCA strategy which focuses on shifting environmental conditions (Tearfund, p.9).
3.3.3 The Overlap
The overlapping part of Disaster Risk Reduction and Climate Change Adaptation can be seen in the figure below.
Figure 3. The overlap of DRR and CCA (Schwank, p. 8).
CHAPTER IV
ANALYSIS OF NATIONAL ACTION PLAN OF DISASTER RISK REDUCTION POLICY IN INDONESIA
This chapter presents the analysis of the National Action Plan of Disaster Risk Reduction 2010-2012 (RAN-PRB 2010-2012) as the instrumental policy on DRR in Indonesia. It will describe the development of the National Action Plan of DRR (RAN-PRB) from the first document to the second or the last one. Furthermore, this chapter describes how the climate change issue has been taken into account in the latest RAN-PRB policy document. The analysis continues the description of the operationalization of the RAN-PRB by describing the matrix of planned activities by the stakeholders.
4.1 The Development of National Action Plan of DRR (RAN-PRB)
The development of National Action Plan of DRR (RAN-PRB) began in 2006 when the first policy document was established. During the implementation, there were some gaps which needed to be filled which were later resolved in the evaluation and were recommended for the next policy document. Therefore, in the sub-chapter, the evaluation and recommendation will be elaborated upon and followed by the development of the RAN-PRB 2010-2012 that was based on the evaluation and recommendation of RAN-PRB 2006-2009.
4.1.1 The Evaluation and Recommendation from RAN-PRB 2006-2009
Management (BNPB) started to formulate the PRB 2006-2009. The formulation of RAN-PRB 2006-2009 aimed to change the paradigm of disaster management from responsive to preventive. During the implementation of the DRR policy, monitoring and evaluation became part of the activities. Monitoring and evaluation was conducted in order to provide recommendations for the next RAN-PRB 2010-2012. It was carried out based on certain criteria such as:
(1). Consistency
Analyzing the process based on the coherence between the workplans formulated in RAN-PRB documents provided by involved stakeholders.
(2). Coordination
Analyzing the interaction and communication between stakeholders in achieving agreement, consensus and commitment in planning and implementation of RAN-PRB activities.
(3). Capacity
Analyzing the institutional competence, human resources and funding in the RAN-PRB planning and implementation.
(4). Consultancy
Analyzing the involvement or participation of the community in disaster risk reduction activities. Communication and information media can be used to raise community awareness and understanding on the importance of the DRR activities.
(5). Sustainability
Analyzing the framework of development policy in relation to disaster risk reduction in short and long-term periods.
In a general recommendation, the main point is that the next RAN-PRB will have a legal basis in order to have legal protection in every activity at all levels. Furthermore, the researcher will focus on reviewing the recommendations based on the priority in relation to the topic of integration of climate change adaptation. One point of the recommendation is reducing disaster risk factors. This point is broken down into 6 sub-points, which are:
• Accelerating the establishment of national strategic document in climate change adaptation and mitigation at national level in disaster prone areas especially in coastal areas and small islands.
• Building the capacity in reducing the impact of disasters, food stocking, variety of food production, variety of income sources and social network.
• Mainstreaming the disaster risk reduction into government program policy, regional community development such as Mid-Term Regional Development Planning (RPJMD), Regional Government Working Plan (RKPD), Area and Spatial Planning (RTRW) at province, district/municipality level, regulation, building codes and guidelines.
• Increasing the mechanism, sanction system, building codes and others things related to disaster risk reduction.
• Re-analyzing disaster risks based on spatial planning after conducting an infrastructure development and maintenance analysis.
• Prioritizing safe public infrastructure such as hospital, school, community centre, etc.
4.1.2 The Development of RAN PRB 2010-2012
4.1.2.1 Prioritized Recommendation from RAN-PRB 2006-2009
