REDUCTION OF NATURAL DISASTER RISK THROUGH

CONTINGENCY PLAN IN CILACAP DISTRICT, CENTRAL JAVA

PROVINCE, INDONESIA

Dr. Rudi SUBIYAKTO, M.A. ¹

¹ Maritim Raja Ali Haji University, Faculty of Social and Politics Sciences, Department of Public Administration,
rudisubiyaktodap2015@gmail.com

Article history:

Accepted 15 February 2020

Available online 31 April 2020

Keywords:

Contingency Planning,

Mitigation,

Policy.

A b s t r a c t

Cilacap Regency is one of the areas that have the highest level of natural disaster vulnerability in

Central Java. Various types of disasters have the opportunity to occur and have an impact on the

entire region. To anticipate the impact of these potential natural disasters, the district government

has issued a contingency plan to reduce the risk of disasters.

This study aims to describe how to reduce the risk of natural disasters through contingency planning.

The study uses a qualitative approach with the case study method. Data and information obtained

through focus group discussions (FGD), interviews, and documentation studies. The informants were

determined purposively, coming from elements of the government, private sector, and a community

of 25 people.

The results of the study illustrate that the role of contingency planning is very important to reduce

disaster risk. The contingency plan document clearly contains various guidelines and technical steps

taken by stakeholders in anticipating natural disasters. The guidelines for the action plan are

supported by techniques that can be easily learned so that the stages of the process of how to

anticipate natural disasters can be carried out by anyone. The implementation of a natural disaster

risk reduction contingency plan in the Cilacap Regency received support from the implementer, the

environment, resources, and disposition.

1. Introduction

Cilacap Regency has the highest level of natural disaster

vulnerability in the area of Central Java Province. Cilacap

Regency has various types of natural disasters except volcanic

eruptions, ranging from natural disasters, landslides, tsunamis,

robots, drought / drought, fires and tornadoes which are spread

across 24 sub-districts, 15 sub-districts and 269 villages.

(National Plan for Natural Disaster Management 2014-2019).

At the level of the Province of Central Java Cilacap Regency

ranks first as an area that has disaster vulnerability, at the National

level the District Head of Cilacap experienced a change from

position 3 to position 17 (IRBI 2016), this change occurred

because the local Regional Government and the Regional

Disaster Management Agency (BPBD) have speed in responding

to every disaster that comes.

Legally formally, the implementation of natural disaster

management in Ciluapap District has been regulated in Cilacap

District Regulation No. 1 of 2012 concerning the Implementation

of Disaster Management. The purpose of these regulations is to

provide protection to the community from the threat of disaster,

guaranteeing the implementation of planned, integrated,

integrated disaster management. coordinated and thorough.

Article 44 paragraphs 2 and 3 state that in disaster emergency

plans, contingency plans and Standard Operating Procedures

(SOPs) can be supplemented which are further stipulated in the

Regents' Regulations.

mailto:rudisubiyaktodap2015@gmail.com
https://orcid.org/0000-0002-7900-4543

Contingency Plan is one of the important points in the

implementation of natural disaster management so that the

Regional Government of Cilacap Regency has prepared a

Contingency Planning Document for all natural disasters that

often occur in the Cilacap Regency.

The process of preparing a natural disaster contingency planning

document in Cilacap District involves stakeholders from

government, community and business sectors through a focus

group discussion (FGD). The FGD aims to obtain information

and input in the form of data to prepare a contingency plan

document for each natural disaster.

Related to the description above, this paper aims to analyze the

Natural Disaster Risk Reduction by using the Contingency

Planning Document. Observed phenomena include the role of

contingency planning documents and how they are implemented

both in context and content in natural disaster risk reduction in

Cilacap district.

2. Literature review

2.1 Contingency Concept

Contingencies are a condition that can occur, but not necessarily

true (BNPB, 2012). Contingency planning is an attempt to plan

something event that might occur, but does not rule out the

possibility that the event will not occur. Because there is an

element of uncertainty, we need a plan to reduce the

consequences that might occur.

Based on a literature search it was found that the concept of

contingency has several meanings. First, contingencies are

interpreted as a guide to act in reducing the impact of disaster risk

(Knight, 2001; GTZI, 2010). Second, contingency is defined as a

step in taking action to reduce the impact of disaster risk from

training, training, organizing and completing, reviewing plans,

early warning, education and public information (Choularton,

2007, BNPB, 2010); response and reaction (Schneider 2004).

Third, contingency plans are interpreted as a process of planning

ahead, in uncertain circumstances, where scenarios and objectives

are agreed upon, managerial and technical actions are determined,

and systems for responding to events are structured in order to

prevent, or better cope with, the situation or emergency situation

encountered. "(Khambali, 2017; BNPB, 2010; IASC, 2008).

Contingency plan is a plan that has been designed in conditions

that can be said to be not fixed with the agreed paths or paths,

techniques, management and various implementations that have

been determined together with various countermeasures.

Contingency planning is basically a process of identification and

various preparation of plans that can be based on existing

contingency conditions.

According to Knight (2001) and Choularton (2007) contingency

planning is effective when done following the parameters and

functional framework of good emergency preparedness.

According to FEMA (2015) emergency preparedness or planning

frameworks present important progressive steps to illustrate how

levels of government, the private sector, non-governmental

organizations and society generally work together to build and

maintain the capabilities needed to prevent, protect, mitigate and

respond threats and dangers.

In GTZ-International services (2010: 8), the International

Strategy for Disaster Reduction (ISDR) sets out the institutions

and guidelines for Contingency planning:

(1). The International Accounting Standards Committee (IASC):

as a guideline for contingency planning between agencies for

humanitarian assistance as a main reference document for

contingency planning between agencies whose members are

general in nature.

(2). International Federation of Red Cross and Red Crescent

Societies (International Federation): guidelines that serve as

working tools for disaster response staff in international

federations at the local, national, regional and global levels.

(3). National Disaster Management Agency (BNPB): formulates

and publishes policies on disaster management and the handling

of refugee populations effectively and coordinates the

implementation of planned, integrated and comprehensive

disaster management activities.

The diversity of definitions confirms the common understanding

of planning contingencies must include the initial setup process

so that they can make planning or developing strategies and

procedures in response to potential crises or emergencies that will

occur. This includes developing scenarios (to anticipate crises),

determining the responsibilities of all actors who will be involved

in identifying roles and resources, the data collection and

dissemination process, and organizing each actor so that he is

ready when needed, and determining the needs for objectives to

be achieved.

Contingency planning is an integral part of the overall

preparedness program and needs to be developed for each type of

hazard, then updated and trained regularly (Vidiarina, 2010).

Contingency planning made by the IASC provides a general and

comprehensive framework to guide joint action between all

partners including each agency and / or organization and sector /

group group. The plan does not intend to replace the planning

needs of each agency and / or organization with respect to their

mandate and responsibilities within the sector / group. However,

contingency planning provides focus and integration for the

various levels of planning needed to effectively achieve

humanitarian response. (GTZ-International services, 2010: 8).

3. Principles of Contingency Planning

Based on workshop reports related to Contingency Planning

between the National Disaster Management Agency (BNPB) and

GIZ IS PROTECTS, 2012 illustrates that the Working group for

contingency planning in the Regional Disaster Management

Agency (BPBD) complements the principles of contingency

planning as follows: 1. Based on the process of joint compilation

& conducted openly 2. Valid only for one type of hazard (Hazard

specific) or collateral 3. Has a risk scenario and goals that are

mutually agreed upon 4. Has a validity period marked by a trigger

5. When is activated (if there is an indication of disaster and or an

official statement / early warning) a. When it will be changed into

emergency response operation plan. b. When is deactivation done

c. When updated or reviewed 6. Define the roles and duties of

each sector (has a division of tasks, authority and clear

responsibilities) 7. List realistic resource components 8. Agree on

a consensus that has been made together 9. Made to deal with

emergencies and the impact of disasters 10. Must be followed up

with: a. A series of actions (training / rehearsal, procurement,

arrangements) b. Formal adoption c. Monitoring and evaluation

The third meaning of the contingency plan above aims to increase

preparedness in the face of disasters. Emergency planning must

be based on realistic parameters to respond with detailed planning

and preparedness (Choularton, 2007). This requires

understanding of emergency planning which is very important

and relevant to extreme disaster events.

From this definition, several important points can be drawn that

contingency planning is:

1. done before an emergency in the form of a planning process

going forward.

2. more a process than producing a document.

3. is a process of consensus building to agree on scenarios and

objectives to be taken.

4. is a preparedness for emergency response by determining the

steps and handling system that will be taken before an emergency

occurs.

5. includes efforts that are preventive and also limit the

consequences that are likely to occur.

4. Research Methodology

The method used in this research is qualitative. The research

seeks to see the interrelationship between the phenomena of

contingency plans and sub phenomena that include the process of

preparing natural disaster contingency plans in Cilacap district.

Creswell (1994: 150-151), in qualitative research conducted

through observation, interviews, and document studies. Data

collection in this study was carried out with focus group

discussions. 25 FGD participants were selected through a

purposive method. Data analysis was performed descriptively

qualitatively.

5. Research Result

In accordance with the natural disaster contingency planning

document in Cilacap District, the person responsible for

implementing the natural disaster contingency plan is the

Regional Government of Cilacap Regency and in its

implementation is assisted by the Regional Natural Disaster

Management Agency (BPBD) and Regional Apparatus

Organizations, Community, Business World and there are also

parties other private parties. Cilacap District Government that

records and coordinates all parties involved in the implementation

of natural disaster contingency plans so that success or failure in

the implementation of the natural disasters contingency planning

policy lies in the ability of the Regional Government in recording,

coordinating the parties involved. For the Cilacap District, in

terms of implementing natural disaster contingency plans, so far

it has been running well, often the emergence of natural disasters

makes the data of parties involved in organizing natural disasters

easily obtainable, and the coordination of Cilacap district

government, Regional Disaster Management Agency and

Organizations regional apparatus, the community, the business

world and all those involved are also going well.

The scope of the implementation of the Cilacap Regency disaster

contingency plan is a document that contains policies on strategy,

management, efforts and aspects of coordination in disaster

management in the event of a disaster (during an emergency

response) that is implemented just before a disaster occurs, in

circumstances that may occur by the disaster Cilacap Regency

Government with coverage of disasters in Cilacap Regency.

Related to the scope of the implementation of natural disaster

management in the district of Cilacap which includes strategy,

management, efforts and aspects of coordination that this applies

when the disaster occurs or does not occur, but this illustrates that

for the implementation of natural disaster contingency plans in

the district of Cilacap , all parties involved are ready if natural

disasters really occur.

The Regional Government of Cilacap Regency is responsible for

implementing the natural disaster contingency plan and is assisted

by the Regional Disaster Management Agency (BPBD).

In terms of responsibility in implementing natural disaster

contingency plans in Cilacap Regency, as local government

stakeholders assisted by the Regional Disaster Management

Agency have been implemented well so that in terms of the scope

of the implementation of natural disaster contingency plans that

include strategy, management, coordination efforts can be carried

out optimally.

6. Discussion

The implementation of mitigation policies and natural disaster

contingency plans in Cilacap Regency is a process that must be

carried out continuously by individuals, groups and communities

in managing all hazards through efforts to minimize the

consequences of disasters that may arise from these hazards

(mitigation). Mitigation is one of the stages in disaster

management. The mitigation phase in its meaning means that

preparedness or alertness is an inexpensive way to reduce the

effects of the dangers faced by the community compared to other

actions, such as evacuation, rehabilitation and reconstruction.

Therefore mitigation must be carried out jointly through the

Government's agenda, and individually both at and after the

event, and before the event. Understanding the interrelated stages

in disaster management is done by managing and evaluating so

that it does not develop into a disaster. This assessment deals with

the physical aspects of the earth better known as geo-risk analysis.

Law Number 24 Year 2007 concerning Disaster Management

defines disaster as a series of events that pose threats and disrupt

people's lives and livelihoods caused by both natural and / or non-

natural factors as well as human factors, resulting in casualties,

damage to the surrounding environment, material loss and

psychological impact. The social, cultural, political and legal

dimensions are very important and fundamental in the context of

environmental management based on sustainable development.

With the issuance of Law No. 24/2007, a derivative policy and

the mainstreaming of planning and funding for disaster relief

were born. The bill outlines contains an important understanding

that is first, there is a change in the disaster paradigm that is

focused on pre-disaster or risk reduction. Second, disaster

management is no longer reactive but more planned and

proactive. Third, the position of the government in this new

paradigm is no longer dominant but rather promotes community

participation (Faturahman, 2018), by placing the community as a

subject, no longer as an object of disaster management. Fourth,

the domain of disaster management is no longer an absolute right

of the central government but has been decentralized to the

regions. In other words, in the context of regional autonomy, the

management of disaster management has also become the

responsibility of the region, both in the budget and policy areas.

The link between vision and mission and regional development

programs in disaster management in the regions. The pre-disaster

stage, namely prevention and preparedness, is part of disaster

mitigation in each district, including service to the community.

Disaster mitigation is carried out as an increase in the capacity of

the Regional Government apparatus in Cilacap Regency. Cilacap

Regency emphasizes disaster mitigation on environmental

aspects. This shows the setting agenda of disaster management

policies in Cilacap Regency included in the regional development

agenda so that the inclusion of the disaster mitigation agenda is a

serious concern of all regional stakeholders to realize disaster-

aware communities.

The role of institutions in disaster management itself is a demand

from regional autonomy where government administrative

authority is needed as an agent of change, but there are values that

have been forgotten that in addition to authority, the government

also has obligations and responsibilities to the public. If regional

autonomy is intended as a gift the authority of local governments

to bring development directly to the public, it is also necessary to

develop the values of obligations and responsibilities that are the

basis of these authorities. Disaster management in the regions

involves the joint implementation of all elements of society for

that good governance in realizing a culture of disaster awareness

as part of development has three important aspects:

1. An administrative system that involves many actors, both from

government and non-government elements, because the source of

legitimacy comes not only from the constitution and regulations

but also from the values that develop in the community.

2. Conflicts that arise are then developed to respond to problems

and public interests as a collective

3. Relationship patterns in the environment do not have to be

formal and strict institutional structures.

Disaster mitigation and contingency plans are a series of efforts

undertaken to reduce disaster risk, both through physical

development and awareness and enhancing the ability of the

community to deal with the threat of Soehatman Ramli's disaster

(2010: 32). Disaster mitigation is also an attempt to reduce or

even prevent the impact caused by a disaster, so it is clear that this

mitigation is preventive before a disaster event occurs.

Mitigation is one of the stages of disaster management carried out

by the Cilacap Regency Regional Disaster Management Agency

(BPBD) which is the first stage carried out. In the pre-disaster

mitigation phase this is a task carried out by Field I namely the

Prevention and Preparedness Section of the Disaster Management

Agency (BPBD) of Cilacap Regency. In accordance with the pre-

disaster stages of mitigation, it can be seen with the programs and

activities carried out by the Division I Prevention and

Preparedness of the BPBD Cilacap Regency are:

Based on the research results of the meeting, there was an

agreement to establish cooperation between stakeholders in

disaster management through Contingency Plans, but due to the

long process, it caused the compilation of natural disaster

contingency planning documents in Cilacap district to be replaced

with new ones, waiting for the process from the local government.

As a basis for natural disaster mitigation, the Government of

Cilacap Regency is still guided by the old documents.

Besides this, early warning was also carried out in the disaster

contingency plan in Cilacap. The form of early warning in

prevention and preparedness which is subsequently carried out by

the Regional Disaster Management Agency (BPBD) of Cilacap

Regency is to create a warning system in areas adjacent to the

river.

The simple disaster warning system is the task of the Cilacap

Regency Regional Disaster Management Agency (BPBD) to be

able to change the warning system to be even better by using

existing technological innovations. Connectivity between water

level monitoring equipment in rivers connected to BPBD posts

using the latest information technology will facilitate the disaster

management system in dealing with impending disasters, so the

impact will be low.

7. Factors that support and inhibit

The success of natural disaster contingency plans in Cilacap

Regency is determined by many supporting and inhibiting factors

involved in policy implementation. In Edwards III's view, policy

implementation is influenced by four factors, namely (1)

communication, (2) resources, (3) disposition, and (4)

bureaucratic structure. The four factors are also related to one

another.

Communication of a program can only be implemented well if it

is clear to implementers. This concerns the process of delivering

information, clarity of information and the consistency of the

information conveyed. Resources, including four components

namely sufficient staff (number and quality), information needed

for decision making, sufficient authority to carry out the duties or

responsibilities and facilities needed in implementation.

Disposition or the attitude of the executor is the commitment of

the implementer of the program. The bureaucratic structure is

based on standard operating procedures that govern the flow of

work and the implementation of policies. To facilitate the

implementation of policies, dissemination needs to be done well.

The management requirements for policy dissemination are four,

namely: (1) there is respect from community members for

government authorities to explain the need to morally comply

with laws made by the authorities; (2) there is awareness to accept

the policy. Awareness and willingness to accept and implement

policies manifest when policies are considered logical; (3) the

belief that policies are made legally; and (4) initially a policy was

considered controversial, but over time the policy was considered

as something natural.

In setting goals and especially in achieving these goals, there are

three important elements of planning that call attention to the

need for coordination, there is consistency between the various

socioeconomic variables of a community, and setting priorities.

1. Supporting factors

There is a role for the community in disaster management efforts

through awareness of the dangers of natural disasters by creating

special community organizations and focusing on disaster in

Cilacap district. This community organization receives assistance

in the form of facilities and infrastructure originating from the

private sector in the form of building posts and evacuation

equipment. The establishment of this community organization

provides the community with information on the status of

disasters so that the community can immediately prepare for

disaster.

2. Inhibiting factors

According to Edward III's approach, according to the approach,

the implementation of government policy is influenced by four

variables, which become a supporting factor if all goes well but if

not it will become an inhibiting factor. These variables are

communication, resources, disposition and bureaucratic structure.

These four factors are interconnected:

a. Communication

The success of the policy requires that the implementation knows

what needs to be done. If the goals and objectives of the policy

(the target group) will reduce implementation distortion. If the

goals and objectives of a policy are unclear or even unknown to

the target group, then there is a possibility of resistance from the

target group. The implementation of communication on disaster

contingency plans in Cilacap Regency through a work program

of socialization and simulation as well as the formation of disaster

volunteers is done in a series of events. The formation of disaster

volunteers begins with the socialization process first. In the

implementation of the socialization and simulation process, the

activity implementing committee carried out the planning that

had been prepared in the previous stage. In the previous stage, the

Cilacap Regency BPBD as the party who formulated the

communication message, prepared all communication

components. Communicators, messages, media and

communicants were prepared by the BPBD of Cilacap Regency

as the organizer of the communication activities for the disaster

contingency plan.

In communicating, communicating messages are carried out by a

communicator prepared by the organizing committee to deliver

the communicative message to the communicant, in this case the

people of Cilacap Regency. The process of selecting

communicators in each work program of the Cilacap Regency

BPBD was discussed in an internal meeting. The communicator

in the work program of socialization and simulation is the person

in charge of delivering the communication message that has been

prepared in the terms of reference. The communicators in the

socialization program and the simulation are the speakers or

speakers who have been appointed and prepared by the

organizing committee of the activity. While the speakers are

chosen based on their capacity and capability as well as the

suitability of their work fields. Cilacap Regency BPBD has not

only internal speakers in the Cilacap Regency BPBD, but also in

several other agencies such as the official or regional government

in accordance with the theme and topic of the socialization talks.

b. Resource

Although the contents of the implementation policy and

contingency plan have been clearly and consistently

communicated, if the implementer lacks of resources it will

implement. Implementation will not be effective. These resources

can be in the form of human resources, namely competition

forementement and financial resources. Resources are important

factors for implementing policies to be effective. Without

resources, policies are just left to work and become documents.

c. Disposition

Disposition is the character and characteristics or attitudes of the

implementor such as commitment, honesty, democratic nature. If

the implementor has a good disposition then he will run the policy

as well as what the policy maker wants. When an impementor has

different characteristics or perspectives from policy makers, the

policy implementation process also becomes ineffective.

d. Bureaucratic structure

In charge of implementing the policy has a significant influence

on the implementation of the program. One of the important

structural aspects of every organization is the existence of

standard operating procedures (SOP). SOP is a guideline for

every implementor in acting. An organizational structure that is

too long will tend to weaken supervision and lead to red tape,

which is a complex and complex bureaucratic procedure. This can

in turn cause organizational activity to be inflexible.

8. Conclussion

Based on the results of research and discussion, there are several

conclusions. in this research, namely:

1. Normatively implementing the natural disaster contingency

plan in Cilacap Regency, all actors can contribute to the mitiation

planning process and natural disaster contingency plan in Cilacap

Regency. This makes good mitigation plans and disaster

contingency plans are policies that can solve problems related to

disaster mitigation and natural disaster contingency plans in

Cilacap District.

2. The process of preparing a contingency plan is prepared jointly

by the Office / Institution / Institution of Government and non-

Government and business world related to disaster management

in Cilacap Regency. This Contingency Plan can be used as

material / guidance for cross sectoral agencies / agencies to carry

out activities in the context of disaster management and reduce

risk / danger. The activation of this Contingency Plan becomes an

Operational Plan at the time of a disaster and becomes a reference

for each sector / element / agency of the relevant agency.

Contingency Plans will be evaluated according to circumstances

and changing conditions and will be conducted every 2 (two)

years to update data and information. Coordination for the

preparation, monitoring and updating of the Contingency Plan is

carried out by the Cilacap Regency BPBD or other Institution

appointed by the Cilacap Regent. This Contingency Plan will also

be followed up with socialization and rehearsals or simulations to

the public, especially those in risk areas in Cilacap Regency.

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