Chapter 6 – Community Tsunami Preparedness
6.3. Tsunami Preparedness
89 m. Strengthen the capacity of local authorities to evacuate persons living in disaster-prone areas. Strengthening capacity of local authority not only in evacuating persons, but also in emergency situation and disaster risk governance.
n. Establish a mechanism of case registry and a database of mortality caused by disaster in order to improve the prevention of morbidity and mortality. It is important to maintain important government data about population impact in case of disaster.
o. Enhance recovery schemes to provide psychosocial support and mental health services for all people in need. Not only physically but the community should get psychosocial support and mental health after the shock that caused by disaster.
p. Review and strengthen, as appropriate, national laws and procedures on international cooperation, based on the guidelines for the domestic facilitation and regulation of international disaster relief and initial recovery assistance. This point is not really relevant for this study, since this study focusing on local and community level. However, international cooperation, including in funding mechanism, could be a big assistance toward building community resilience activity.
90 different characteristics they also need different plans. In a normal or no disaster situation planning, there is a need for a general disaster management plan. The next planning stage is development of a contingency plan related to a situation potential disaster situation that might exist. The operational plan is an effort to make an action plan in case of emergency. In a longer term of post disaster, rehabilitation and reconstruction planning are needed as a guide in the process of rehabilitation and reconstruction.
Figure 6.1: Disaster Management Cycle19
In 2013, the BPBD Banyuwangi has made a tsunami contingency plan that one of the key points is to make preparedness planning consist of two parts, namely temporary evacuation shelter (TES) and cluster planning. There are at least seven clusters:
1. Temporary Evacuation Shelter
19 Vidiarina (2010). There are a lot of “versions” of disaster management cycle. This reference is chosen related to contingency plan that discussed in this part.
91 Temporary evacuation shelter is one of some cluster in tsunami contingency planning of Banyuwangi District (see table 6.1). In post-disaster context temporary shelter could be divided into three sector namely (1) emergency (evacuation) shelter (2) temporary (transitional) shelter and (3) permanent housing.
Table 6.1: Temporary Evacuation Shelter Cluster
No. Village Location Capacity Proximity
1. Sarongan Sarongan Village Field
2500 persons 5 km 2. Sumberagung
(Pancer Hamlet)
Templek Village Field
Gumuk Kancil Village Field
3500 persons
1500 persons
8 km
6.5 km
3. Pesanggaran Pesanggaran village hall
2000 persons 7 km Source: BPBD Banyuwangi, 2012
The temporary shelter should give a secure and comfortable place especially for tsunami victims. Temporary shelter should provide privacy and dignity for the family and community that stay in an evacuation shelter. BPBD Banyuwangi has made an effort regarding temporary evacuation shelter. But, this planning is still very general and does not elaborate on any technical details.
2. Search and Rescue Cluster
Search and rescue cluster is one of some clusters that have a task for victims search and rescue that are impacted by a tsunami (see table 6.2). Some activities in this cluster are:
personnel coordination, assessment, personnel mobilization and victims sweeping.
92 Because of search and rescue characteristics that need special skills, the government should be involved in all sectors that have competence in the search and rescue cluster such as military, police and search and rescue team.
Table 6.2: Search and Rescue Cluster
No. Activity Actor Duration
Institution Responsible Institution 1. Personnel
Coordination
Military, Police, Search and Rescue Team
Head of City Military Office (KODIM)
One Day
2. Assessment Rapid
Assessment Team
BPBD One Day
3.
Evacuation Military, Police, Search and Rescue Team
Head of City Military Office (KODIM)
14 Day Victims and
Refugee Mobilization
Military, Police, Search and Rescue Team
Head of City Military Office (KODIM)
30 Day
Intensive Care Unit
Health agency and Indonesian Red Cross
Head of City Military Office (KODIM)
14 Day
4. Victims Sweeping
Military, Police, Search and Rescue Team
Head of City Military Office (KODIM)
7 Day
Source: BPBD Banyuwangi, 2012
The government actually has a special institution for victims search and rescue called on by the National Search and Rescue Agency (Basarnas)20 that specifically have a task to do; victims search and rescue in emergency and a disastrous situation.
According to the Presidential Regulation No. 83 Year 2016, the functions of Basarnas (BNPP) are:
20 Basarnas has change their name from Basarnas to BNPP through Presidential Regulation (Perpres) No.
83 Year 2016
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Formulate and decide norm, standard, procedure, criteria and requirement and permission procedure in search and rescue;
Giving a guidance and direction in search and rescue activity;
Deciding standardization and need of search and rescue based on laws;
Conduction coordination with relevant institution;
Conduction information and communication system;
Delivering an information about search and rescue to society;
Delivering an information about search and rescue operation regularly and anytime at the time of search and rescue operation toward society;
Conducting guidance, monitoring and evaluation of search and rescue activity;
Giving socialization about search and rescue.
Unfortunately Basarnas/BNPP has not mentioned or become a part of search and rescue cluster in contingency planning made by BPBD Banyuwangi.
3. Health and Psychosocial Cluster
Health and psychosocial cluster is another cluster that has an important role particularly in a post disaster situation. Therefore, the local government of Banyuwangi has prepared this situation by making a plan about health and the psychosocial cluster (see table 6.3). In the health and psychosocial cluster, two aspects that are exists namely the health aspect and psychosocial aspect.
In regards to the health aspect, this cluster has a function to serve community especially for the victims who are injured and have a health problem caused by the disaster. Another thing related to the health aspect is about the infectious disease problem that could happen in a post disaster. While in the psychosocial cluster, this cluster is expected to provide public service to society particularly for the victims who have traumatic situation caused by a tsunami. Some activities in health and the psychosocial cluster are: developing health posts, relief and evacuation, emergency infrastructure, infectious disease control and psychological service.
94 Table 6.3: Health and Psychosocial Cluster
No. Activity Actor Duration
Institution Responsible Institution 1. Developing
Health Posts
Health Agency, PMI, Social Agency
Head of Health Agency
14 Day 2. Relief and
Evacuation
Puskesmas, PMI Leader of health sector
14 Day 3. Emergency
Infrastructure
Health Agency, Infrastructure Agency
BPBD 3 Day
4. Infectious Disease Control
Health Agency, Puskesmas
Leader of health sector
11 Day 5. Psychological
Service
Health Agency, Social Agency, Puskesmas
- 11 Day
Source: BPBD Banyuwangi, 2012 4. Food and Nutrition Cluster
The food and nutrition cluster is a cluster to fulfill the needs of society especially in case of an emergency and rehabilitation in post-disaster. Some activities in this cluster are rice provision, provision of volunteer needs, side dishes provision, additional food provision and logistic distribution (see table 6.4).
The food and nutrition cluster should be integrated with logistic management system. Integration between food and the nutrition cluster and disaster management system will make the provision of food needs for the victims become optimal.
Unfortunately, until now Banyuwangi District generally and Pancer Hamlet community specifically do not have systematic logistic management for a disaster that could be integrated with the food and nutrition cluster.
95 Table 6.4: Food and Nutrition Cluster
No. Activity/Need Actor Duration
Institution Responsible Institution 1. Rice Provision Logistic Agency,
Social Agency
Social Agency 14 Day
2. Volunteer Needs BPBD BPBD 14 Day
3. Side Dishes BPBD BPBD 14 Day
4. Additional Food BPBD BPBD 14 Day
5. Logistic
Distribution Foods
PU Agency PU Agency 14 Day
Source: BPBD Banyuwangi, 2012 5. Temporary Shelter
Temporary shelter is the next stage after emergency shelter. Before developing permanent housing, victims will stay in a temporary shelter. Different with temporary shelter in developed countries, such as Japan that already used a semi-permanent building for temporary shelter, while in Indonesia the temporary shelter is still using a tent.
Therefore BPBD Banyuwangi also uses a tent in their planning to build a temporary shelter. Some activities in this cluster are coordination with a post center, distribution of needed tents, distribution of personnel to set up the tents, and installation of tent equipment (see table 6.5).
Beside temporary shelter through providing the availability of the tent, the local government also needs to prepare an alternative to build a temporary shelter with a semi-permanent housing scheme. In many cases, the development of permanent
96 housing need a long time so that the government should build comfortable temporary housing for the victims.
Table 6.5: Temporary Shelter Cluster
No. Activity Actor Duration
Institution Responsible Institution 1. Coordination
with post center
Sub district government, sub-district police (Polsek), sub-disctrict military (Koramil)
Head of sub-district (camat)
One day
2. Distribution of needed tent
KODIM, Dinsos, BPBD, Private sector
Dinsos One Day
3. Distribution of personnel to set up the tent
KODIM, village government, Dinsos, BPBD, Private sector, Satpol PP
BPBD One Day
4. Set up the tent Dinsos, village government, Satpol PP
Dinsos One Day
5. Installation of tent equipment
Dinsos, village government, Satpol PP
BPBD One Day
Source: BPBD Banyuwangi, 2012 6. Infrastructural Recovery
Infrastructural recovery is one important aspect in post-disaster recovery, especially for critical infrastructure. Those critical infrastructures include emergency roads, emergency bridges, electricity, drinking water and telecommunication. Other forms of activity are personnel coordination, supporting tent set up, assisting refugees to move
97 from an emergency to temporary shelter, transportation service and victims data and information collection (see table 6.6).
Table 6.6: Infrastructural Recovery Cluster
No. Activity Actor Duration
Institution Responsible Institution 1. Infrastructural
recovery
Emergency road Dinas PU Dinas PU 5 day
Emergency bridge Dinas PU Dinas PU 4 day
Electricity PLN PLN 1 day
Drinking Water PDAM PDAM 1 day
Telecommunication ORARI ORARI 1 day
2. Personnel coordination
Relevant Institution
Head of Sub District (Camat)
14 day 3. Supporting tent set up Police, TNI,
BPBD
Head of Sub District (Camat)
3 day 4. Assisting refugee to
move from emergency to temporary shelter
Indonesian Red Cross Agency
Head of Sub District (Camat)
3 day
5. Transportation service Dishub and Police
Head of Sub District (Camat)
7 day
6. Victims data and information
Dispenduk Dispenduk 7 day
Source: BPBD Banyuwangi, 2012
One of the most interesting areas of information from the above table is the government belief that they could repair electricity during only one day after the tsunami. In many cases restoring power in one day after the tsunami is impossible. It is also for other sectors such as drinking water or telecommunication. This kind of plan needs to be reviewed by BPBD Banyuwangi.
98 7. Education Cluster
The education cluster is a part of clusters that focuses on how to conduct the education process so that children in school could continue their study and educational activities. Activities in the educational cluster include preparing education service teams and preparing emergency education services (see table 6.7).
Table 6.7: Education Cluster
No. Activity Actor Duration
Institution Responsible Institution 1. Preparing education
service team
Dispendik Head of Dispendik 11 day Rapid reaction team UPTD of each
district
Head of UPTD in Each Sub-District
11 day Rapid assessment
team
UPTD of each district
Head of UPTD in Each sub-District
11 day 2. Preparing emergency
education service
Dispendik Head of Dispendik 11 day Emergency school UPTD of each
district
Head of UPTD in Each sub-District
11 day Administration
service post
UPTD of each district
Head of UPTD in Each sub-District
11 day Source: BPBD Banyuwangi, 2012
The most important thing in the education cluster is how the community and children could continue their study and educational activities after a tsunami. Besides the technical-infrastructure aspect, it needs to prepare for the mental-psychological aspect, because the student might also get a traumatic problem caused by the coming of the tsunami.
99 8. Water and Sanitation Cluster
The water and sanitation cluster is a cluster that specifically giving water and sanitation service to tsunami victims. Some activities in water and sanitation cluster are drinking water service, sanitation, feces disposal and waste management (see table 6.8).
Table 6.8: Water and sanitation cluster
No. Activity Actor Duration
Institution Responsible Institution 1. Drinking water
service
PDAM, DKP, Dinas PU
PDAM 30 day
2. Sanitation - - 30 day
Feces disposal DKP DKP -
Waste management DKP DKP -
Source: BPBD Banyuwangi, 2012
Although there are a lot of weak areas in their planning, the effort to make a contingency plan that is already in place by the local government of Banyuwangi should be appreciated. Unfortunately, there is no socialization of contingency planning toward community involvement, particularly in Pancer Hamlet or relevant institutions.
Therefore, the community could not understand the contingency planning substance including the clusters. Institution beside BPBD, also do not know about contingency plans and the task of each institution in an emergency and post-disaster situation.
We never got any socialization or explanation regarding the contingency planning that already made by local government of Banyuwangi. We also never know about clusters program that have been made in that contingency planning21.
21 Interview with community in Pancer Hamlet
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