11. Improving Vulnerable Urban Space in Postdisaster in Yogyakarta and Central Java, Indonesia: Participatory and Comprehensive Approach

Transcription

1 11. Improving Vulnerable Urban Space in Postdisaster in Yogyakarta and Central Java, Indonesia: Participatory and Comprehensive Approach Suprayoga Hadi 11.1 Introduction The Disaster The Earthquake disaster on May 27, 2006 at 5:53 AM local time measuring 5.9 on the Richter scale, which lasted 53 seconds, hit not only most areas in all five districts of Yogyakarta Province but also affected a few areas in Central Java Province. Yogyakarta Province, which is located in the southern part of central Java Island, lies on a tectonic and volcanic area. The active Merapi Volcano is on the northern part and in the southern part (Indian Ocean) is a the Sunda plate, which is the subduction zone of the Australian plate. The epicenter of the earthquake was in the Indian Ocean about 33 km south of Bantul District in Yogyakarta Province. History shows that tectonic earthquake disaster has struck Yogyakarta Province more than five times since 1937, which two of which, including earthquake in May 2006, resulted in major devastation. The crossing of plate Australia-Eurosia is a major cause of disasters in this area. The impact of disaster was highly concentrated on the high density built up area in the district of Bantul in Yogyakarta and district of Klaten in Central Java. It implies that the damage heavily impacted housing and private sector building, primary small and micro enterprises located in residential areas. A serious impact on the productive sectors leads to a threat on the deterioration of poverty levels. A comprehensive analysis made by the Damage and Loss Assessment Team estimate the total amount of dam-

2 226 Suprayoga Hadi age and losses caused by the earthquake at Rp trillion, or US$3.1 billion. The analysis also estimates that about 30,000 small and medium enterprises have been directly affected by the disaster, resulting in the loss of around 130,000 jobs. As a consequence, the unemployment rate is likely to rise from 7% to around 11%. Therefore, government efforts for rehabilitation and reconstruction not only focus on physical reconstruction but also on the recovery of productive sectors, particularly small and micro enterprises, such as ceramic, small-scale handicrafts, batik, furniture and leather industries. Other disaster threats in Yogyakarta come from the Merapi Mount. In early May 2006 the volcano erupted result in hot lava slides more than 5 km away to the southern and southeastern parts of Merapi. This eruption threatened about 70,000 people surrounding the volcano, and led to the Center of Volcanology and Geological Hazard Mitigation raising the alert level to Level 1, indicating that a major eruption is eminent Structure of Paper The structure of paper consists of: 1. Introduction 2. Characteristics Vulnerability in Yogyakarta and Central Java. This chapter describes physical, socio and economic conditions of the affected area and also examines main issues from the analysis of the damage and loss assessment. 3. Policy and Planning for Post-disaster Rehabilitation and Reconstruction. This chapter intends to present the overall approach of governments for rehabilitation and reconstruction, including government s policy, rehabilitation plan and monitoring, and institutional framework to support the implementation of recovery. 4. Comprehensive Approach for Improving Vulnerable Urban Space. This chapter aims to describe the medium and long-term government policy for improving the vulnerable urban space 5. Conclusion 11.2 Characteristic of Vulnerability in Yogyakarta and Central Java This section aims to illustrate the vulnerable urban space in Yogyakarta and Central Java with regard to social and economic vulnerability, which

3 11. Improving Vulnerable Urban Space 227 led to high death toll, psychological trauma, significant housing damage, and ruin of livelihoods Geography and Demography Yogyakarta Province and Central Java Province are located in the central and southern part of Java Island. With Yogyakarta as its capital city, Yogyakarta Province consists of four districts and one city, while Central Java Province consists of six districts. Population density in Yogyakarta ranks second nationwide and Central Java ranks fourth, while density in the Yogyakarta City ranks third among all urban districts in Indonesia (Table 11-1). As seen in the table below, the severely damaged areas, Bantul, Klaten and Sleman districts, are among the most densely populated areas in both provinces Social and Economic Conditions Nominal Gross Regional Domestic Product (GRDP) for DI Yogyakarta Province in 2004 (current price) was Rp trillion, or approximately US$ 2.3 billion, accounting for about 1% of the national GDP. In Yogya karta Province, services and trade jointly made up almost 40% of the regional GDP in 2004, while agriculture accounted for about 17%. Table Demographic conditions (Source: Poverty Statistical Data 2004) Province and district Population (100s) Area (km 2 ) Density (Inhabitants/km 2 ) Yogyakarta Province 3, , ,047.0 Bantul ,620.9 Sleman ,661.2 Gunung Kidul , Yogyakarta City ,703.0 Kulonprogo Central Java Province 5, , Klaten 1, ,736.6 Magelang 1, , ,066.6 Boyolali , Sukoharjo ,796.4 Wonogiri 1, , Purworejo , Indonesia 212, ,981,

4 228 Suprayoga Hadi Table 11-2 shows the real regional GDP and GDP growth for Yogyakarta Province and the five districts, Central Java Province and district Klaten. There were 117,560 small medium enterprises (SME) in Yogyakarta Province and Klaten district before the disaster. Central Java and Yogyakarta have been known as the centers of production for furniture, ceramics, handicraft and batik Damage and Loss Assessment Immediately after the disaster, the government, coordinated by BAPPENAS, prepared the damage and loss assessment (DLA). The assessment was undertaken jointly by BAPPENAS, the provincial and local governments of Yogyakarta, provincial and local governments of Central Java, and international partners, namely the World Bank, the Asian Table Real GDP and GDP growth (Source: Statistical Bureau 2005) Province and GRDP (constant Annual growth rate Economic structure (FY 2004 in billion Rp.) district price 2000) (%) / /2004AgricultureServices Trade, res-totataurant (trillion (trillion & Rp.) Rp.) hotel Yogyakarta , , , , Province Bantul , Sleman , , , , Yogyakarta , , , Kulonprogo , Central Java , , , , Province Klaten , , , Indonesia 1, , , , , ,202, Table Impact of the disaster on SMEs in Yogyakarta and Central Java (Source: Estimates of Joint Assessment Team 2006) Name of affected district Number of SMEs (predisaster) Affected unites Workers in SMEs Formal Informal Total Formal Informal Bantul 21,306 9,588 5,040 14, ,570 30,160 Klaten 25,000 4,500 3,360 7, ,500 13,440 Yogyakarta City 8, ,680 2,456 27,150 6,720 Sleman 18,558 1,113 1,120 2,233 38,972 4,480 Gunung Kidul 21, ,210 22,742 2,240 Kulonprogo 22, ,233 23,539 2,240 Total 117,560 17,299 12,320 29, ,472 49,280

5 11. Improving Vulnerable Urban Space 229 Development Bank and the United Nations. As the earthquake struck in the early morning, it trapped many people in their homes and killed almost 5,900 people, injured more than 37,000 people and made hundreds of thousands homeless. Comparing the demographic conditions in Table 11-1 with Table 11-4 shows that Bantul and Klaten districts are the most heavily affected districts with densely populated areas. The damage and loss assessment shows to what extend the disaster affected the local economy development, estimated at Rp trillion, or US$ 3.1 billion. More than 50% of the damage and loss affected the housing sector and 90% affected private ownership. Major findings of the damage and loss assessment show that: 1. Damage to public infrastructure was less than predicted 2. Damage and losses in houses and tertiary infrastructure were significantly high. Houses mostly were privately owned with poor construction. Table Housing Damage, Dead Toll and Number of Injured People (Source: Ministry of Public works 2006) District Number Housing damage Dead toll Injured of housing(unit) (before Totally Lightly disaster *1 ) damage damage Yogyakarta Province 703, , ,278 4,659 19,401 Bangul 181, ,440 69,905 4,121 12,026 Sleman 196,965 22,467 32, ,792 Gunung Kidul 158,570 15,071 17, ,086 Yogyakarta City 78,079 14,348 16, Kulonprogo 87,940 9,143 9, ,179 Central Java Province 963,333 99, ,111 1,057 18,526 Klaten 280,513 95,892 96,253 1,041 18,127 Magelang *2 285, Boyolali 219, , Sukoharjo NA 1,529 2, Wonogiri NA Purworejo 177, , Kebumen NA Temanggung NA Karanganyar NA Total 1,666, , ,389 5,716 37,927 1) Number of housing before disaster based on Podes ) Magelang (city and district)

6 230 Suprayoga Hadi 3. Damage in productive sectors was considerably high and led to significant job loss in micro and small enterprise sectors. The damage also severely affected manufacturing, energy, water and sanitation services. 4. Damage in the social sector was significant, such as education facilities, religious buildings and cultural sites. 5. Damage in cross-sector was considerable, mostly publicly owned, such as in the public administration sector, including buildings, equipment, personnel and public records, and in the financial sector. Fig Number of victims and housing damagefig.. Table Damage and loss assessment (Source: Preliminary Damage and Loss Assessment 2006) Sector Disaster effect Ownership Damage Loss Total Private Public Housing Social sectors Productive sectors Infrastructure Cross-sectoral Total (Trillion Rp.)

7 11. Improving Vulnerable Urban Space Impact on Economic Performance As a consequence of physical damage, particularly on productive sectors, the disaster contributed to the deterioration of employment, poverty and hence on the regional economy and local government finances. The damage and loss assessment shows that: 1. Bantul district s economy is the most affected compared with other districts in Yogayakarta and Central Java. It is expected that the GRDP will decline by 23%, followed by Klaten district (9%) and Kulonprogo (7%). 2. The reduction in economic activity is likely to result in the loss of around 130,000 jobs, which represents about 4% of total preearthquake employment in the affected area. As a consequence, the unemployment rate is expected increase from 7% to 11% Policy and Planning for Post-disaster Rehabilitation and Reconstruction in Yogyakarta This chapter intends to demonstrate the policy action particularly for shortterm planning of post-disaster rehabilitation and reconstruction. It covers: - Recovery policy and systematic approach; - Action plan for rehabilitation and reconstruction; and - Institutional framework for post-disaster rehabilitation and reconstruction Recovery Policy and Systematic Approach Considering the magnitude of disaster, rehabilitation and reconstruction will take three years beginning immediately after the emergency response stage. Based on and the nature of the destruction, the policy for rehabilitation and reconstruction policy emphasizes: 1. Housing and settlement recovery. This policy is aimed to rebuild and rehabilitate homes based on earthquake resistant standards, better environmental health through proper water and sanitation, and local aspirations and needs. Based on this policy, housing reconstruction is undertaken using the community-based participation approach. The central government, through the Ministry of Public Works, issues ministry regulation guidelines for post-disaster rehabilitation and

8 232 Suprayoga Hadi reconstruction of housing in Yogyakarta Province and Central Java Province. This regulation is followed by the standard operation procedure issued individually by the provincial government of DI Yogyakarta and Central Java. Then, the local community, assisted by community development consultants and village facilitators, undertake reconstruction based on the regulations and guidelines. Since housing and settlement recovery is the main priority for rehabilitation and reconstruction, the government puts its effort to provide funding from various sources, such as from the national budget (APBN) and multi-lateral international donors. 2. Public infrastructure recovery. This policy supports recovery of the role of public infrastructure services, which boosts the revitalization of social life and the local economy. So far, infrastructure rehabilitation and reconstruction is mostly undertaken through funds provided by central, provincial and local government agencies. 3. Local economy revitalization. The goal of this policy is to provide support for stimulating local economic activities and income of the community, which leads to lowering the poverty level. Since the majority of the affected people work in small and micro enterprises, the government intends to provide immediate employment opportunities through the provision of central, provincial and local government budgets as well as international donors. The damage and loss assessment shows that the unemployment rate might rise from ASSESSMENT D L A ACTION PLANS REHAB & RECON NATIONAL ACTION PLAN PROVINCIAL ACTION PLAN LOCAL ACTION PLAN BUDGET ALLOCATION REHAB & RECON NATIONAL BUDGET & DONORS GRANTS NATIONAL BUDGET & PROVINCIAL BUDGET NATIONAL, PROVINCIAL & LOCAL BUDGETS EXECUTION OF REHAB & RECON CENTRAL LINE MINISTRIES PROVINCIAL AGENCIES LOCAL/ DISTRICTS AGENCIES MONITORING IMPLEMENTATION REHAB & RECON FINANCE PHYSICAL PERFORMANCE CONSISTENCY COORDINATION CONSULTATION CAPACITY INPUT PROCESS OUTPUT INDICATORS INPUT PROCESS OUTPUT PERFORMANCE EVALUATION REHAB & REKON PERFORMANCE EVALUATION OUTCOME/ BENEFIT IDICATORS EFFICIENCY EFECTIVENESS BENEFIT Fig Reconstruction planning and monitoring process

9 11. Improving Vulnerable Urban Space 233 7% to around 11% as a consequence of the disaster. It shows that the services sector, including small and medium enterprises, is hardest hit, and accounts for most of the total job loss (55%). Therefore, the government is facing the challenge of how the recovery could bring building back better. The approach of local economic recovery is particularly undertaken by providing the working capital and equipment, and also by supporting small and micro enterprises with working capital. To support the recovery of livelihoods, international donors are allowed to carry out their programs directly in the community under the supervision and coordination of participating local governments. Government responsibility regarding post-disaster recovery includes not only implementation of rehabilitation and reconstruction, but also monitoring the impact of reconstruction and measuring to the benefit of reconstruction to the community and regional economy in general. The overall rehabilitation and reconstruction process is illustrated in Fig Action Plan for Rehabilitation and Reconstruction Need assessment Following the damage and loss assessment, the central government coordinates preparation of the rehabilitation and rehabilitation action plan. Damage and Needs Action Plan Estimated Damage & Estimated Recovery Needs over ACTION PLAN FOR POLICY PRIORITY STRATEGY GROUPED INTO 3 FOCUSES OF Data Source from Data source from Fig Need assessment and action plan approach

10 234 Suprayoga Hadi In the first stage, a need assessment is carried out based on the following process: 1. Pre-disaster baseline data from Statistics Agency and other sources 2. Assessment stages: a. Preparation and preliminary assessment conducted at the national level; o data collection from emergency relief efforts, optimizing information from any possible data centers o updating and verifying data and information regularly b. Field survey and data collection; c. Updating and verifying data. Continuously updating and validating the data as required for further recovery planning o conducted collaboratively by national, provincial and local government agencies with donor assistance o consistent and sustainable coordination and consultation o assistance from experts in rapidly assessing needs and o possible impact role of local governments and community is instrumental in monitoring and verifying the assessment process, through participatory process d. Process 3. Formulation the recovery plan, including financing plan National Action Plan Prior to implementing the reconstruction process, BAPPENAS provided a National Action Plan for post-disaster rehabilitation and reconstruction, in collaboration with central government agencies, the provincial and local governments of DI Yogyakarta, and the provincial and local governments of Central Java. The implementation of recovery will take three years, up to The National Action Plan elaborates; 1. National policy and strategy for implementing the recovery process. As mentioned above, the rehabilitation and reconstruction emphasizes housing and settlement recovery, public infrastructure recovery and local economy revitalization; 2. Financing. Considering that rehabilitation and reconstruction should be implemented immediately and requires a huge amount of funds, the government tries to seek funds from various sources, including the central government budget, provincial and local government budgets, grants and loans from international funding, and private/individual funding;

11 11. Improving Vulnerable Urban Space Activity and responsible parties. The action plan details activity to be undertaken and responsible parties, central government agencies, provincial agencies and local government agencies. International donors as well as private sector parties who contribute to reconstruction should be under the supervision and coordination of the government. Based on the National Action Plan, the provincial governments of DI Yogyakarta and provincial government of Central Java prepare their Provincial Action Plan. The total budget estimate based on the National Action Plan is shown in Table Table Financing scheme for rehabilitation and reconstruction Housing and settlement Public Infrastructure Economic recovery Funded by private/ company/ community Financial stimulation, and regulatory support : economic sector in general Funded by community/ private with government support Physical rehabilitation Physical rehabilitation : electricity Water and sanitation telecom Financial stimulation and regulatory support : SME Government Expenditure with support from community Physical rehabilitation : market-place, government building, cultural heritage, health, education, public facilities Funded by Government Expenditure Physical rehabilitation: road, bridge, irrigation (Government expenditure/government support include support from donors) Table Budget estimate for rehabilitation and reconstruction Sector Damage Budget Estimation and Losses % of DLA (Trillion Rp) (Trillion Rp) Housing & Settlement % Social Sector % Economic Sector % Infrastructure % Cross-Sector % Total %

12 236 Suprayoga Hadi Institutional Framework for Post-disaster Rehabilitation and Reconstruction The government of Indonesia adopts two stages of post-disaster recovery: the emergency response phase and the rehabilitation and reconstruction phase. Emergency Response Phase The emergency response phase was undertaken as soon as the disaster occurred and lasted about one to two months. This phase was led by Bakornas PBP (National Coordinating Board for the Management of Disaster), which mainly provides planning and coordination among central government agencies and provincial and local governments during emergency relief. The Bakornas PBP is chaired by the Vice President of the Republic of Indonesia. Implementation is coordinated by the Satkorlak PB (Provincial Coordinating Unit for the Management of Disaster) at the provincial levels and implemented by Satlak (District/City Implementing Unit) at the district/city levels. During this stage, many donors and stakeholders/nogs gave contributions for emergency relief coordinated by Satkorlak and Satlak Rehabilitation and Reconstruction Stage The rehabilitation and reconstruction stage for post-disaster is carried out following the termination of the emergency response stage. Normally the stage will last two to three years. To accelerate the recovery process, GoI establishes a special agency for the rehabilitation and reconstruction process. For the post-disaster recovery process in Aceh, the GoI adopts a centralized approach, in which the central government establishes the Rehabilitation and Reconstruction Board for NAD-Nias (Badan Rehabilitasi dan Rekonstruksi NAD-Nias). Decentralized approach has been adopted for the post-disaster rehabilitation and reconstruction stage in Yogyakarta. For this purpose, the government issued the Presidential Decree no. 9 in 2006 regarding the establishment of a Coordination Team for Rehabilitation and Reconstruction Post-disaster in Yogyakarta Province and Central Java Province. The National Coordination Team, which is chaired by the Coordinating Ministry of Economy, plays its role mainly for policy, strategy and action plan for the post-disaster rehabilitation and reconstruction. The National Coordination Team consists of the Steering Committee and the Executing Team.

13 11. Improving Vulnerable Urban Space 237 The Steering Committee is assisted by the National Technical Team, which has the main role of providing implementation guidelines for policy and strategies, and providing recommendations and solutions for problems and constraints in the implementation of rehabilitation and reconstruction. Unlike the Steering Committee, the National Technical Team is posted in Yogyakarta. The Executing Team is established in DI Yogyakarta Province and Central Java Province, and chaired by the Governor. Based on the Keppres 9/2006, the Executing Team is responsible for providing operational policy and strategy, and preparing the regional action plan. National Technical Team held monthly technical workshop attended by all stakeholders involved in the implementation of rehabilitation and reconstruction, such as some central government agencies, provincial and local government agencies, international donors and other key players. The main issues from the technical workshops are regularly reported to the Chair of National Coordination Team. In monitoring the progress of the recovery process, BAPPENAS together with the executing agencies are assigned to formulate and implement a monitoring and evaluation system for rehabilitation and reconstruction. Monitoring and evaluation of the implementation are aimed to: (1) monitor the flow of funds from various sources to the reconstruction process, (2) measure the progress of the reconstruction efforts and financial disbursements, and (3) measure the socio-economic impact of the reconstruction The Way Forward: Comprehensive Approach for Improving Vulnerable Urban Space After recent experience from various disasters in Yogyakarta and other areas, including earthquake, volcano and tornado, the government is now trying to examine the approach to minimize impact from disaster. In general, the approach for disaster preparedness and risk reduction is both topdown and bottom-up. The top-down approach is facilitated through national policy and regulation, while the bottom-up approach is mainly for the implementation of disaster preparedness National Policy and Action for Disaster Risk Reduction Although regulations for disaster management have not been enacted, the national action plan for risk reduction was launched last month. It is devised in response to the increase incidences of natural disasters in the

14 238 Suprayoga Hadi country within the last two years, such as the Yogyakarta and Central Java earthquake and the Aceh and Nias Tsunami. The national action plan is a national document specifying platforms, priorities, action plans and mechanisms pertaining to the implementation and institutional basis of disaster management in Indonesia. It elaborates interests and responsibilities of all stakeholders identified through a participatory coordination process and in line with the Hyogo Framework for Action. The purpose of the action is to provide guidelines and information that will facilitate decision makers to pledge commitment to cross-sector and jurisdictional priority programs based on a strong and systematic foundation. Currently, disaster risk mitigation and management has become one of nine priorities for national development as prescribed in the government s Work Plan (RKP) 2007, enacted through Presidential Regulation No. 9/2006. The disaster risk reduction activities stated in the RKP 2007 are allocated under the Natural Disaster Management Policy through the following programs: 1. Enhancement of natural disaster mitigation and climate forecasting; 2. Spatial planning and natural resource protection zoning, including disaster-prone areas in coastal zones and sea areas. The current spatial plan will be improved by incorporating the risk mitigation policy and management; and 3. Development of a natural disaster management system and early warning system. Key targets in RKP 2007 for disaster mitigation and management are; 1. Completion of emergency response, rehabilitation and reconstruction in regions affected by disasters in 2005 and 2006; 2. Strengthening of the preparedness of institutions and the community in preventing and mitigating the risks of future natural disasters Regional Strategic Framework and Building Local Government Capacity At the regional level, the priorities will be addressed in order to: 1. Support the provincial and district/city governments in mainstreaming Disaster Risk Reduction (DRR) into annual and middle-term development plans;

15 11. Improving Vulnerable Urban Space Build awareness among executive and legislative branches of the government and other relevant stakeholders on the importance of DRR; 3. Facilitate provincial and district/city in formulating action plans for DRR; Support the provincial and district/city governments in the establishment and institutional building of disaster management institutions at their respective levels and the conduct of capacity building for DRR mainstreaming Facilitate coordination and cooperation among local stakeholders involved for the purposes of setting-up appropriate disaster management institutions Community Based Participation for Disaster Preparedness and Risk Reduction To implement disaster preparedness and risk reduction at the local level, the following actions are taken in line with: 1. Disaster preparedness and risk reduction: a. To formulate locally appropriate manuals produced for earthquake resistant construction; b. To develop multi-hazards (volcanoes, floods, landslides and earthquakes) risk assessment maps and community response plans at the community levels. 2. Development of multi-stakeholder Community-based Disaster Risk Reduction (CBDRR) initiatives: a. To develop CBDRR initiatives involving multiple stakeholders; b. To support cooperation and coordination among government, civil society and other relevant stakeholders in developing CBDRR models; c. To formulate joint action plans to build the resilience of the community towards disasters within the CBDRR framework; and d. To provide guidelines for disaster mitigation, promotion of safe construction practices, building codes, guidelines for retrofitting, training for construction workers, and the development of community-based early warning systems.

16 240 Suprayoga Hadi 11.5 Conclusions Disaster in Yogyakarta occurs due to vulnerable conditions: 1. With an area of 32.5 km 2 and more than 80,000 housing units, Yogyakarta has become one of the most densely populated areas, with an average of 2,464 units/ km Among the 62,200 houses in Yogyakarta, around 78% already are permanent structures and more than 17,800 housing units are semipermanent or non-permanent structures made of wood or bamboo. 3. Around 22% of housing in Yogyakarta is relatively vulnerable, mostly semi-permanent, and vulnerable to windstorms, and is made of wood, bamboo, and unstable structures. 4. At least nine sub-districts in Yogyakarta have more than 1,000 nonpermanent houses in each sub-district. 5. High population density, exceeding16,098 people/km2, makes Yogyakarta very vulnerable if a big disaster happens. Furthermore, disaster impact is not only due to vulnerable physical conditions, but also social and economic conditions that lead to the expectation of increased poverty levels and the deterioration of welfare following a disaster. Finally, in general, the various disasters have resulted in significant impact in Yogyakarta from the following causes: 1. Natural and man-made hazards, such as environmental degradation and geotechnical hazards; 2. High vulnerability of communities, infrastructure and elements in cities in disaster-prone areas; 3. Low capacity within the local governments and community. References Bappenas, the Provincial and Local Government of DI Yogyakarta, the Provincial and Local Government of Central Java, and International Partners (2006) Preliminary Damage and Loss Assessment, Yogyakarta and Central Java Natural Disaster Bappenas (2006) Action Plan for Earthquake Post-disaster Rehabilitation and Reconstruction in DI Yogyakarta province and Central Java Province Office of the State Minister for National Development Planning / National Development Planning Agency and National Coordinating Agency for Disaster Management (2006) National Action Plan for Disaster Reduction