Role of the regional bureaucracy of east java province in natural disaster management policy integrative based on community

Journal of Environmental Treatment Techniques

2019, Volume 7, Issue 4, Pages: 730-736

J. Environ. Treat. Tech.

ISSN: 2309-1185

Journal web link: http://www.jett.dormaj.com

Role of the Regional Bureaucracy of East Java

Province in Natural Disaster Management Policy

Integrative Based on Community

Praptining Sukowati , Vecky Nelwan

Politic and Social Science Faculty, Merdeka Malang University

Student of Psychology Doctoral Program, Malang State University

Received: 01/04/2019 Accepted: 25/08/2019 Published: 03/09/2019

Abstract

The management policy of handling disasters in East Java Province is still a concern. Therefore a new paradigm of disaster

management is needed to overcome these problems. East Java Province, as one of the disaster-prone areas (± 35 District / City,

BPBD 2009), with a vast expanse of nature and a relatively dense population, should not bet again on dealing with natural disaster

problems. There are no other alternatives for The Regional Government of East Java, in addition to formulating a comprehensive,

integrative and community-based natural disaster management policy and optimizing the role of the bureaucracy related to handling

natural disasters. The research objective was to find guidelines or models for disaster management policies in East Java Province,

especially in providing basic or minimal services in disaster-prone areas. Whereas long as the role of local government bureaucracy

has not been optimally related to service in an integrative community-based manner. The nature of the research is qualitative

descriptive with a grounded theory approach from Bysan. Data collection through in-depth interviews, FGDs, observations,

documentation for almost eight months in Jember District and Malang Regency as a representation of disaster-prone areas in East

Java Province. The results of the study were the role of bureaucracy in handling natural disasters in disaster-prone areas of East Java

Province was not optimal, because the management policy of natural disaster management was still an instruction so that essential

services had not been appropriately implemented. Cooperation between regions and between sectors has not been well implemented.

So that a management policy model for handling natural disasters in disaster-prone areas is needed that is related to institutional and

handling in areas prone to natural disasters in East Java Province.

Keywords: Policy, Handling natural disasters, Role, Bureaucracy, Community-Based

East Java Province, as one of the disaster-prone areas,

Introduction

with a vast expanse of nature and a relatively dense

population, should not bet anymore on dealing with natural

disaster issues. There is no other alternative for the East Java

Provincial Government, at present besides formulating

policies comprehensive, integrative and community-based

management of natural disaster management. Programs and

preparedness activities for disasters must be initiated and

developed. Disaster awareness education and disaster training

must be familiarized immediately. Study centers and training

to deal with disasters must be fully raised and supported.

Also, the role of the bureaucracy in handling disasters must

be immediately optimized. The policy for handling natural

disasters in East Java Province can be started from

formulating natural disaster management whereas a dynamic,

continuous and integrated process to improve the quality of

steps related to disaster observation and analysis as well as

prevention, mitigation, preparedness, early warning,

So far, the handling of natural disasters in East Java

Province can be said to be still alarming. Even though the

Disaster Management Law has been ratified or an integrated

rule of the kind that has legal force, but in reality, it has not

been implemented consistently, we still see many incidents

where the implementation of disaster management policies is

carried out with less professional disaster management. For

this reason, a more professional disaster management policy

is needed, by establishing a specialized agency that handles

natural disasters. The handling institutions that have been

made must be integrated so that they can genuinely cooperate

and help each other in overcoming natural disasters. So far

the existing institutions are often still waiting for instructions,

so handling often becomes late.

Corresponding author: Praptining Sukowati, Politic and

Social Science Faculty, Merdeka Malang University. Email:

praptining@unmer.ac.id.

emergency

handling,

disaster

rehabilitation,

and

Journal of Environmental Treatment Techniques

2019, Volume 7, Issue 4, Pages: 730-736

reconstruction. In the implementation of disaster management

policies must be related to changes in attitudes and behavior

of the target of community welfare development, namely

towards the functioning of the community, both individuals,

groups and communities and the environment, especially

disaster victims in disaster-prone areas.

advocacy aims to increase community capacity and try to

reduce the vulnerability of individuals, families, and

communities to 'literacy' disasters. To deal with problems that

occur in disaster-prone areas. Besides that, community-based

programs use a reality-based approach that is relatively easy-

to-implement and straightforward ways; people in the lower

classes can make positive changes to get to a better direction.

The integrative disaster policy approach according to

Praptining (2009) is the design (policy) of disaster by

presenting regulations and policies in an integrated manner,

namely by uniting, connecting, or linking programs in

accordance with the vision, mission and duties of the related

Literature Review

According to Law Number 24 of 2007, disasters are

events or series of events that threaten and disrupt the lives

and livelihoods of people caused, either by natural factors or

non-natural factors or human factors resulting in human

casualties, environmental damage, property losses, and

psychological impact.

offices,

community,

stakeholders,

non-governmental

organizations and other related parties in order to reduce

disaster risk(5) .

According to Weber in Syamsiar, bureaucracy has the

role of "delegated legislation," "initiating policy" and

internal drive for power, security, and loyalty." Bureaucracy

3 Methodology/Materials

is very instrumental in giving priority to its program activities

in the implementation of national development (administering

government, community empowerment, and public services)

This research was conducted with a qualitative approach.

Qualitative research is mainly observing people in their

environment, interacting with them, trying to understand their

language and interpretation of the world around it (4).

According to Strauss and Corbin (1990), one of the

advantages of qualitative research is that it can be used to

explain intricate details of a phenomenon that is difficult to

explain if using a quantitative approach. Also, this type of

research can be used to study organizations, groups, and

individuals. This type of qualitative research is also called

naturalistic research (1,2,6).

(9). As a model of government organization, bureaucracy

exists as a system of authority / authority that is rationally

determined by various regulations, which are intended to

organize regularly a work that must be done by many people

and many people and as objective and positivistic (etic)

reality, as well as an interpretive (emic) phenomenon as a

form of understanding and experience. Pye in Suryono,

introduces the term bureaucratic polity to refer to

bureaucratic politics. The politics of bureaucracy (in

Indonesia) is a form of the political system with decision-

making power located entirely in the hands of state rulers,

especially military officers, and high-ranking bureaucratic

officials (8). Kusumasari said, with the research titled

The focus of this research are: 1) Management of natural

disaster management in an integrative community-based

manner (community-based) in disaster-prone areas in East

Java Province, 2) Role of local government bureaucracy in

handling natural disasters in disaster-prone areas in East Java

Province, 3 ) The form of regional government cooperation

on the handling of community-based integrative disasters in

natural disaster-prone areas in East Java Province, 4)

Constraints faced in the management of handling natural

disasters in an integrated, community-based area prone to

natural disasters in East Java Province.

The unit of analysis in this study is the role of local

government bureaucracies related to disaster management

policies in disaster-prone areas and institutions involved in

disaster management in disaster-prone areas in East Java

Province. This definition of bureaucracy is limited to the

representation of institutions that handle or are involved in

disaster management policies in the area of East Java

Province which includes the East Java Provincial Disaster

Management Agency. With organizations or local

government institutions under their coordination.

The location of this study was conducted in East Java

Province, which has approximately 35 disaster-prone areas

(East Java Province BPBD, 2009), both city and district

areas. From 35 disaster-prone areas, two regions were taken

as representations of disaster-prone areas in East Java.

Namely Malang Regency and Jember Regency. These two

regions are selected because almost every year the area is

affected by disasters. Jember Regency is a representation of

flood disasters, while Malang Regency is a representation of

volcanic disasters and landslides. Also, the two disaster-prone

areas, namely Malang Regency and Jember Regency, have

"Developing the Capability of Public Bureaucracy in the

Implementation of Post-Disaster Basic Services." The results

of the study illustrate the need for appropriate policies in

handling natural disasters to increase public bureaucracy

accountability in the public eye. By implementing primary

education about the disaster in each school, especially in

disaster-prone areas. So that people will be better prepared

early if a disaster occurs in their area. While the types of

disasters according to Law Number 24 of 2007 include: a)

Natural disasters are disasters caused by events or a series of

events caused by nature including earthquakes, tsunamis,

volcanic eruptions, floods, droughts, hurricanes, and

landslides; b) Non-natural disasters are disasters caused by

events or a series of non-natural events, among others in the

form of technological failures, failing modernization. And

disease outbreaks; c) Social disasters are disasters caused by

events or sequences of events caused by humans which

include social conflicts between groups or between

community communities; d) Technology failures are all

disasters caused by errors in design, operation, negligence

and intentional, human in the use of technology and / or

industry that causes pollution, damage to buildings, casualties

and other damage. Community-based disaster management

'community-based' or community-based disaster approach is

an effort to empower community capacity to be able to

recognize, manage and take initiatives to solve existing

disaster problems independently (10). Community-based

Journal of Environmental Treatment Techniques

2019, Volume 7, Issue 4, Pages: 730-736

carried out community approaches, which have been going

on for a long time.

reduce disaster victims. Besides that, East Java has many

faults specifically, both locally and regionally. This fault if

active will cause an earthquake. If the earthquake source is

quite shallow, it will endanger the people who live around

and also some distance from the location of the fault.

According to Sugeng from Satkorlak, East Java Province

(before the BPBD of East Java Province), and Satlak in

disaster-prone areas: "As long as there are no new rules,

generally still use guidelines, related to disaster management

in responding to the need for logistical planning for the

emergency response phase in natural disasters, namely by

developing management that integrates the problem of multi-

commodity network flow with routine transportation means.”

The objective function of management developed is to

minimize the amount of unmet demand for all commodities

along the planning horizon.

"For ease of implementation, Satkorlak was formed at the

provincial level, which later became the BPBD of East Java

province, while at the regional level in the form of District /

City Satlak or BPBD." Harijogi, Head of the Provincial

Disaster Management Agency (BPBD East Java Province):

"The East Java Provincial BPBD has been formed, based on

Republic of Indonesia Law No. 24 of 2007 concerning

Disaster Management, Government Regulation No. 21/2008

concerning Disaster Management and Government

Regulations No. 22/2008 concerning Disaster Funding and

Management, and Regional Regulation No. 2/2009, which

has the duty to ensure the implementation of disaster

management in a planned, coordinated, integrated and

comprehensive manner in order to provide protection to the

public from threats, risks and impacts of a threat."

In this study, primary and secondary data were collected

related to the role of local government bureaucracies in

disaster management. Primary data was obtained through

interviews with participants involved in the policy process

and observations of events related to the management of

natural disaster management policies that are community-

based (community-based). While secondary data is carried

out through the study of documents, using two data analysis

techniques, namely Baysian Carl Smith, in Sukowati,

Sjamsuddin, and Suryono, namely data analysis to find out

the indicators of the success of the policy, in this case, is the

implementation of natural disaster management in East Java

Province (7). Through Baysian analysis techniques, we can

immediately find out more quickly and more precisely what

disaster management models can be recommended to local

governments so that the policies taken will be more targeted.

Then the results were forwarded through Focus Group

Discussion (FGD), with experts who in this case were

Disaster Study Centers, NGOs, professional experts

(researchers), victims' communities, observers about

disasters, as well as officials related to disaster management

in vulnerable areas disaster in East Java Province. The steps

of data analysis follow from the opinion of Strauss & Corbin

(

2003), in grounded theory. In terms of the validity of the

data, there are four criteria used to check the validity of the

data, namely: transferability, dependability, and

confirmability. This is consistent with what was explained by

2,3,6).

(

Administratively, BPBD carries out its activities through

the Regional Budget, funds on call, foreign aid, secular funds

by each Agency / Service and the community whereas the

form of disaster management that was developed was

referring to the existing Bakornas (BNPB), namely by the

issuance of Regional Regulation No. 2 of 2009 and East Java

Governor Regulation No. 27 of 2009, including the Head,

Head of Fields, and Steering Elements consisting of two,

namely steering elements from relevant government officials

and the elements of the professional community.

Results and Findings

.1 Integrated Management of Natural Disaster

Management based on the Community in the Prone

Disaster Areas of East Java Province

Geographically, geologically, hydrologically and socio-

demographically, East Java Province is a disaster-prone area.

With the diversity of factors that cause disasters and the

breadth of the scope and dimensions of disasters according to

Law No. 24 of 2007, it requires the involvement of various

skills to overcome disasters. Indonesia as a country that is in

the ring of fire which is at risk of volcanic eruptions is also in

an active earth crust where three to five faults of the earth's

plates meet colliding and causing a dynamic movement of the

Indonesian territory, which has the risk of significant natural

disasters. Also, the condition of the country of Indonesia,

which is an archipelagic country that has a vast coastal

length, which consequently has a large population living on

the coast and has a livelihood for fishers, causes potential

disaster victims caused by tsunamis, coastal abrasion, and

other coastal areas. The potential for great natural disasters is

nothing more than a reflection of natural phenomena that are

geographically very typical for the East Java Province. The

process of plate dynamics that is quite intensive has shaped

the relief of the earth's surface in a distinctive and very varied

region of East Java, from mountainous regions with steep

slopes and seems to imply a high potential of landslides to

sloping areas along the coast with the potential threat of

flooding, land subsidence, and tsunami. This needs to be

watched out especially by disaster-prone areas so that it will

Natural Disaster Management in Malang Regency

Government which has been running is based on, PP 21 of

008, PP 22 of 2008, Malang Regent Regulation No. 25 of

006, PMI Branch of Malang Regency in 2008. (Results of

an interview with Saurianto, Head of Malang Regency PMI)

According to Agung Sukarno, Head of the Satlak Regency of

Malang: The disaster management unit in this guideline is

called Satlak with the organizational structure consisting of a)

Satlak, b) Secretariat, c) Operations control unit consisting of

Crisis Centers and District Emergency Response Task

Force/city, d) Training and extension unit. Satlak carries out

the following tasks: a) Preparing the community to deal with

disasters according to their situation and conditions, b)

Carrying out disaster management activities in their area and

coordinating them according to the guidelines and policies set

by Satkorlak and / or Management Agency, including

prevention activities, early warning , mitigation, emergency

response handlers, recovery, rescue, rehabilitation and

reconstruction, as well as efforts to empower, reconcile, and

Journal of Environmental Treatment Techniques

2019, Volume 7, Issue 4, Pages: 730-736

handle refugees, c) Operate District / city Crisis Centers that

are connected with Provincial Crisis Centers and National

Crisis Centers, d) Mobilize resources and logistics in the

region, e) To identify and identify the resources and

assistance needed for disaster management in their regions to

provide education and training at the district / city level in

accordance with the policy guidelines set by the Satkorlak

and / or Management Agency, f) Maintain efficiency,

efficiency, quality , accountability, transparency, fluency,

orderliness in implementing disaster management in the

district / city area, g) Planning the allocation of funds from

the APBD to support disaster management in its area, h)

Establishing a district / city Emergency Response Task Force

with qualifications and personnel journals in accordance with

regional needs to form Response Units Emergency (UTD)

sub-districts and kelurahan / villages by referring to district /

city, provincial and national disaster management guidelines.

Besides Malang Regency, other disaster-prone areas are

Jember Regency. Jember Regency also has Satlak handling

natural disasters. The basis for implementing disaster

management both in the pre-disaster stage, handling when a

disaster occurs, and post-disaster occurs lead to Law Number

In handling disasters, it is also developed in stages and

continues called the "safety chain" as follows.

Proactive, which is an effort to eliminate and

negate the cause of a disaster.

Prevention, namely efforts to minimize risk and

limit the causes of disasters.

Preparation, namely efforts to improve supervision

and preparedness against the possibility of a disaster.

Response, which is an effort to respond to and

overcome the results of supervision of the possibility of a

disaster, including rescue actions that can be carried out.

Post-disaster handling, namely efforts to restore the

condition to normality and carry out evaluations to improve

disaster management that may arise in the future.

The community-based disaster management model is

intended to be able to involve as many members and

community elements as possible so that in the end this model

can increase community ownership of planned disaster

management activities; which of course is directly

proportional to the sustainability and participation of the

community when the plans are implemented. The main target

of this community-based disaster management model is to

make the maximum possible reduction of community

vulnerability to disasters, manage existing threats, increase

community capacity in monitoring, adaptation, response,

preparing conditions before the disaster, conducting early

warnings, and full community involvement (or

representation) in all aspects of disaster planning. In

community-based disaster management, it also places the

community as the primary resource of knowledge and

expertise; even as much as possible to manage local

knowledge (indigenous knowledge) that has been proven

from generation to generation. In the community-based

disaster management model, because it is placed based on the

community's experience of disasters, it directly links the

elements of ecology to the model of risk reduction and

disaster management.

2 of 2004 concerning Regional Government. In Law No. 32

of 2004, the Regional Government has the authority to handle

one of the essential functions, namely the handling of social

problems which are then further regulated in Government

Regulation Number 38 of 2007 concerning Division of

Government Affairs between the Government, Provincial

Government, and Regency / City Government. Where in the

Government Regulation, it was determined that the authority

of the Regional Government in the Social Sector of the

Disaster Mitigation Sub-Sector was "Countering District /

City Scale Disaster Victims." This means that the limits of

the authority of the Regional Government in handling

disasters are those that only affect the district/city area.

In the context of implementing Regency / City scale

disaster management, based on Law Number 24 of 2007

concerning disaster management, the responsibilities of the

Regional Government in disaster management at the Regency

4.2 The Role of Regional Government Bureaucracy in

Handling Natural Disasters in Disaster-Prone Areas in East

Java Province

city scale are: a) Guarantee the fulfillment of community

rights and refugees affected by disasters in accordance with

minimum service standards, b) Community protection from

the impact of disasters, c) Disaster risk reduction and

integration of disaster risk reduction with development

programs, d) Allocation of disaster management funds in an

adequate Regional Revenue and Expenditure Budget.

According to Edy B Susilo, Assistant II of the Government of

Jember Regency who concurrently served as the chief of

disaster management in Jember Regency, the results of the

interview said: "Jember Regency has not yet had a BPBD, so

far it has been carried out by the Satlak consisting of leaders,

PMI, Community Protection, Social Service, Public Works

Agency, Health Office, and outside elements concerned with

disaster ".

According to Harijogi: "the general policy of handling

disasters is a shared responsibility, where the Government is

responsible and carried out with the community. Disaster

management is carried out in an integrated manner, through

institutional mechanisms, which are focused on Prevention,

Mitigation and Preparedness Efforts.

The role of the Bureaucracy in this matter is the Regional

Disaster Management Agency (BPBD) is part of the policy of

the East Java Provincial Government which is one of the

determining factors in achieving development goals in the

region. Because the success of regional development will also

be determined mainly by the success of disaster management

efforts in the region. BPBD is prepared in line with the

paradigm shift in disaster management in Indonesia. There

are three essential things related to this paradigm shift,

namely: a) Disaster management no longer focuses on aspects

of emergency response but instead on the overall

management of disaster management. b) Public protection

from the threat of disasters by the government is a

manifestation of the fulfillment of people's rights and not

solely because of government obligations. c) Disaster

management is no longer the responsibility of the government

but is standard business for the community.

The results of the interview with Aminkum Imam Rafii,

Secretary of the BPBD said that: "The basic substance which

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2019, Volume 7, Issue 4, Pages: 730-736

is subsequently a priority of activities in the framework of

and Government Regulation No. 23 of 2008 concerning the

Role of International Institutions and Non-Government

Foreign Institutions in Disaster Management, it was

mentioned that although it was arranged in a national and

regional framework, the implementation of disaster

management also involved regional and international actors.

Thus cooperation in disaster management is carried out cross-

region because in essence the disaster is not limited by

individual administrative or territorial spheres.

Regional and international cooperation is one form of

cross-regional disaster risk reduction and a manifestation of

human solidarity and togetherness. By paying attention to

several aspects of disaster management efforts, produce some

essential substances in reducing losses due to disasters, both

loss of life, social, economic and environment. The primary

substance needs to be the commitment of the government,

regional and international organizations, communities, the

private sector, academics, and other relevant stakeholders.

The strategies used to implement these essential

substances include:

basic services provided in disaster management is

manifestation of the implementation of Government

Regulation No. 65 of 2005 concerning Preparation Guidelines

and Application of Minimum Service Standards, which must

be provided in handling disasters specifically related to

disaster risk reduction are: a) Putting disaster risk reduction

as a national and regional priority whose implementation

must be supported by strong institutions, b) Identifying,

reviewing and monitoring disaster risk and implementing an

early warning system, 3) Utilizing knowledge, innovation and

education to build awareness of personal safety and disaster

resilience at all levels of society, d) Reduce the factors that

cause disaster risk and 4) Strengthen disaster preparedness at

all levels of society so that the response done more

effectively. Whereas according to Agung Soekarno, Head of

the Malang District Public Administration Office, as a result

of a paradigm shift towards protection as part of fulfilling

people's basic rights, disaster risk reduction has the following

characteristics: a) Respecting the right to life and dignified

life and responsible government ensuring protection from

disaster risk which is actually avoided, b) Aims to reduce the

causes of disaster risk from development processes that are

unsustainable and that are exacerbated by climate change, c)

Accountable to communities at risk and or affected by

disasters and encouraged to increase participation, equity and

justice. Furthermore, according to the Head of the East Java

Provincial PB Agency, in an interview conducted after the

inauguration as Head of the East Java Provincial PB Agency,

June, 2009, it was stated that: "Given the condition of

disaster-prone areas and the need to protect residents from

disaster threats, East Java Province implemented

Permendagri No 46 of 2008 concerning Organization

Guidelines and Work Procedures of the Regional Disaster

Management Agency with the establishment of the East Java

Provincial Disaster Management Agency. In its

implementation, this disaster management activity involved

all elements of the government, the community, non-

governmental organizations, the private sector, international

institutions and other related parties engaged in disaster

management. According to Edy B Susilo, for Emergency

Response Management, activities include the following: a)

Social Reconstruction Model, b) Model of Physical

reconstruction. In this case, the reconstruction is made jointly

by all parties (stakeholders) and multisector involved and

plays a role in disaster management, including among them

from the government (related sectors), state companies, the

private sector, non-governmental organizations, international

institutions, and society. Reconstruction is carried out as soon

as there are early signs of a disaster or an early warning.

Some types of disasters often occur suddenly (time), without

any prior signs (such as earthquakes), but reconstruction can

still be made. The Sample location of the Emergency

Management, Rehabilitation, and Development Program.

Incorporating disaster risk into policies, plans, and

sustainable development programs in an integrated and

effective manner, with particular emphasis on disaster

prevention, mitigation, preparation and reduction

Development and strengthening of institutions,

mechanisms and institutional capacities at all levels,

especially for the community so that the community can

improve disaster resilience systematically

Systematic collaboration in disaster risk reduction,

implementation of emergency preparedness and recovery

programs in the context of reconstruction for disaster-affected

communities.

SATLAK PB can accept assistance from other parties

from within or outside the country that come from

government / or communities that are non-binding. All

assistance from the community can be given directly to

disaster victims or refugees in coordination with the

Governor or Regent / Mayor as the head of the Satkorlak PB

or the head of the Satlak PB. BAKORNAS PB coordinates all

foreign aid provided for disaster management and

emergencies. Role of PB BAKORNAS in handling disasters.

Whereas in terms of cooperation with outside parties or

NGOs, it can be done with various programs. The Mapping

Program in terms of introducing types of disasters to the

community, among others in terms of making EWS, Tsunami

signs / information, customary signs and official information

from BMG / Government, made maps to determine the red,

yellow and green zones, determine evacuation routes, placing

evacuation stages starting from temporary safe areas to

refugee areas that are genuinely safe (located in the green

zone), and determining communication lines, both

traditionally and via satellite. All of these activities can be

carried out if there is good networking with related

institutions and outside communities who are concerned with

disaster issues.

.3 Forms of Cooperation in Local Governments for

Integrative Disaster Management Based on Communities in

Disaster Prone Areas in East Java Province

In Government Regulation No. 50 of 2007, concerning

Procedures for the Implementation of Regional Cooperation,

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2019, Volume 7, Issue 4, Pages: 730-736

.4 Constraints that Occur in Handling Natural Disasters in

significant impact when a disaster occurs. Thus the policy for

handling disasters draws closer to the community, which

ultimately victims communities or people living in disaster-

prone areas will be better prepared and smarter and

responsive in facing disasters in their respective regions.

2. The role of the local government bureaucracy in

handling natural disasters in disaster-prone areas in East Java

Province is still considered to be less than optimal. The

performance of local governments in handling disasters that

have not been optimal until now is still felt. The ability of the

regional government bureaucracy in order to empower the

community when natural disasters occur is a step of

community-based disaster management policy. The existence

of community-based disaster management can minimize

disaster victims.

3. Regional government cooperation in creating

essential services that are still lacking is also one of the main

problems in disaster management in disaster-prone areas,

even though Government Regulation No. 65 of 2005

concerning Guidelines for Preparation and Application of

Minimum Service Standards and Government Regulation No.

50 of 2007 concerning procedures for implementing regional

cooperation, but it turns out that it cannot be implemented

optimally. Local governments are still very sectoral in

dealing with disaster management. This has an impact on

essential services, and the recovery of victims' communities

has become difficult. Collaboration between regions and

cross-sectors is essential for all aspects of disaster

management, both in the pre, current and post-disaster

situations. For this reason, there is a need for more strategic

regional government policies. With the existence of

references and guidelines for handling officers and other

relevant officers, disaster management is expected to be more

efficient and more effective.

4. Constraints that occur in handling natural disasters in

integrative disaster-prone areas that are community-based in

East Java Province include the absence of awareness from

disaster-prone regional governments to form BPBD, so that

disaster management agencies are more independent not

dependent on top management because of the existence of

human resource, budget, and other technical reasons. What

affects the handling of disasters in disaster-prone areas is not

optimal and slow, because coordination does not work

optimally, but waits from the leader's instructions. Nature of

decision making still seems to be from "top" to "down."

People who experience disaster directly are treated as

"victims" who need to be helped and passive. So that central

intervention is needed to run, to do as much as possible so

that the affected communities can return to "normal" as

before the disaster. Also, there is also no standard norm to

determine goals, ways to achieve and to motivate political-

bureaucratic behavior in terms of disasters at the intermediate

level, especially in the regions, institutional structures,

standard mechanisms, cooperation, and coordination.

Integrative Disaster-Prone Areas Based on East Java

Community Areas

In implementing disaster management in disaster-prone

areas, of course, there are not a few obstacles. The existence

of chaotic regional regulations and central regulations which

often lack synergy with the conditions or conditions that

occur in the field is a significant obstacle and often occurs

when a disaster occurs. What is the readiness of local

government in dealing with disasters? Apparatus that has the

attitude (attitude) and interest (interest) in matters: self-

confidence (self-confidence), action-oriented (action-

oriented), encouragement to always improve self-quality, and

the attitude of responsibility (responsibility) is needed in

handling this disaster. The development of government

capacity in handling environmental disasters must be carried

out in carrying out functions, resolving problems and

achieving institutional objectives, especially in service to

disaster victims. The capacity development of human

resources in the regional government apparatus in handling

disasters must start from the system of recruitment,

placement, and career paths and reward systems received by

the apparatus. Furthermore, the development of the quality of

the human resources of the apparatus concerns the

competence and professional attitude of the apparatus. The

selection of levels and types of education for HR personnel

must be in transparent form and pattern and adapted to local

needs. The low level of attention in resource development is

characterized by the low level of prevention and preparedness

in the face of disasters, the unpreparedness of institutional

performance in disaster management, unplanned and

programmed management, the still low utilization of regional

spatial plans in disaster management policies. Regional

Satlak in particular, there are still many who do not have

education and training as well as adequate insight into

disaster management. Unorganized and precisely land use, as

one of the causes of disasters that caused an increase in

vulnerability. This is compounded by the presence of

government officials and the public who are unaware and

responsive to the potential for natural disasters in their area.

In addition to community funding sources, it has also not

been appropriately managed, only funding spontaneous

charity assistance and self-improvement of environmental

infrastructure. Communities in areas that have a higher risk,

of course, must be more responsive to the emergence of

disasters. Public awareness of its spatial position needs to be

supported by the ability to read and understand signs of

disaster. The ability to understand and read "official" signs

from government institutions is sought. Moreover,

"unofficial" signs from nature, so that people do not have

absolute dependence.

Conclusion

1. In community-based disaster management based on

new public management, where local governments and the

central government can be directly involved and support each

other. The community and the most vulnerable groups are the

main actors and hold key roles in subsequent planning and

processes, and the community is no longer just a "victim"

who needs help. Communities always feel the most

References

1. Bevaola K. Mengembangkan Kapabilitas Birokrasi Publik dalam

penyelenggaraan Pelayanan Pendidikan Pasca Bencana:

Global Review of Disaster Reduction Initiatives. Jakarta: MPBI.

010.