The Reasons Why Military Can Be Effective in Managing Disasters

The Reasons Why Military Can Be Effective in Managing Disasters

By Yuniarti Wahyuningtyas

Honestly to say that i am one of those people who are fond on military world and i am grateful that i have the opportunity to be part of them as non-military personel. How come? well, during the last 2 years of my graduate study in University of Indonesia, I was challenged to join with Student Regiment since I watched their rifle drill and rapelling, so I said to myself "hey, I can do that too!!!".After graduated from my university and worked for 3 years in INGOs, I then applied for scholarshop from UK Embassy Defence Attache and I was selected as one of the scholar from 11 other people that were accepted to study in Indonesia Defence University with affiliation with Crandfield UK. I took Defence Management and Strategy Study with focus on Human Security in 2009 that ended in 2011.

In relation to this article on The Reasons Why Military Can Be Effective in Managing Disasters, I will bring up 2 case studies related to the works that I have conducted within few years behind. Not much people know that the military actually other role beside military operations (wars, counter terrorist, etc), which is known as Military Operation Other Than Wars(MOOTW). Based on Regulation Number 34 Year 2004 on Indonesia Military article 7 clearly mentions that there are 14 types of MOOTW, including humanitarian assistance.

In overall Defence Management and Strategy context, the MOOTW can contribute in ensuring the fulfillment of Human Security dimensions, this include food, security, environment, individual and community. Indonesia Military or Armed Force, like any other countries, Indonesia has 3 main military branches, consist of Army, Navy and Airforce. In each of these branches, each of them set up their own special and technical force, such as Military Construction, Marine, Amphibious Force, etc. There are also other military unit that are established which their function are more non technical military operation, such as Legal and Medical Corps.

Beside military branches, special forces and corps, the military structure in Indonesia is established from national to local level, as it has its own territory bases, these include: KODAM that is base in some main provinces (there are 13 Kodam that are established out of 33 provinces that exist in Indonesia), KOREM that is base in some areas within province under KODAM, KODIM that is set up in each city/district within province under KOREM, and KORAMIL that is set in sub-district level under KODIM. At KORAMIL, there are special staff or military personel that are assigned to monitor the  security and safety of communities, environment and asset in each villages under the territorial of the KORAMIL.

In many cases where a major disaster happens in an area and when the National Disaster Management Organization or BNPB takes over the authority of  Local Disaster Management Organization  or BPBD due to limited resources and or capacity that BPBD has, BNPB usually appoints Head of Kodam to take the lead as the Incident Commander for Response. This situation sometimes cause unpleasent circumstance for INGOs to respond and coordinate with the Commander due to their code or ethic that limited or forbid them tohave any relations with Military for humanitarian affairs. This condition also happen in conflict or crisis area where security and safety in the area becomes challenge for humanitarian agencies to deliver their service, in which a military assistance is required for their workers safeguard and to escort the relief during the distribution of goods and services in the conflict area.

There are some reasons why the Humanitarian Agencies have to limited their interaction with the military, either due to the code of conduct and principle of neutrality, to avoid the involvement of violation to human rights that is caused by the military action, there is a preassumption that military use some portion of the aid for their own interest, or due to fact that military is used to ensure the position of existing government, whereas in some conflict area, the government itself that responsible for the state crime that they commited.

few months ago, there was an earthquake happened in Aceh, all attention waa given to Aceh at that time. despite the fact that this was not a major disaster, at that time BNPB took over the role of BPBD in Aceh for Response and appointed Head of Kodam or PANGDAM asthe incident commander. At that time due to my close relationship with BNPB and extensive network that I have in the government, my previous INGO asked me to coordinate with them for the relief and response that we were going to conduct. The main problem at time was to transport the relief rapidly and save time and cost. Thanks to several friends in Indonesia Defence University that help me in looking for a plane that available. There were several available military aircraft that have schedule to flight to Aceh also the BNPB Rapid Response or SRC PB moda transportation.But, apperantly the management of this INGO decided to rent a commercial plane with high cost and took weeks for arranging the loading and transport of the relief. I didnt say a word to them, just laughing out loud by thinking how stupid they are, spent much money where they can use it to buy more stuffs and delivering more services instead using for renting the plane. Or maybe they want to build public image on how rich this INGO using expensive plane to carry its goods, maybe it would be even better if it stick its flag in the plane.The reason why they decided not using military craft was because of their perception on neutrality and image. If BNPB already instructed that CSOs and NGOs can use available military aircraft for humanitarian assistance, so they supposed need not to worry about it, since BNPB already gave its guarantee of neutrality, safety and security. After all, NGOs are unable to make their move, requesting funding to donors or develop program in Indonesia, if the Government of Indonesia doesnt request any assistance. Funny to know that this INGO works in a country yet persist to using its own way to take actions.

But, not all INGOs are persistance, some can be tolerable and involve military in their program. For instance in the previous Flood Risk Reduction Project that was implemented Iin an urban area, where the communities developed their waste management project in which they process flood mud and turn it into paving block to elevate the road, reconstruct the roads that are damaged from flood or even recontruct the houses. The existing local military in this area has a reguler program that is known as Karya Bakti, a community assistancy program in providing its service in health, construction and other communities needs related to existing communities problems ( the same program is also carried by other KORAMIL in other areas. Beside Karya Bakti, they also have TMMD which more large scale joint military-civil social works more for physical development. BABINSA or Village Military Officers are the backbone to mobilize and oversee the situation in the villages under KORAMIL). by using the paving blocks that are produced by the communities and with share human resources and military tools and equipments, some houses in the project area that damaged from flood were then reconstructed.If we make some cost and benefit analysis, we will realize that   from a small investment for community works we actually can contribute in reconstruction through collaboration and sharing capacities with existing stakeholders, include the military.

During response, some people and NGOs do not realize that KORAMIL has complete socio demographic data that is updated, thanks to the result of the BABINSA work. They also have complete tent, public kitchen, cooking utensils, trained personel, boat, etc that are very useful to use and can be mobilized quickly once disaster hit an area near its territory.During emergency situation,respond time is important to save lifes and minimize loss. Yet once again we sometimes unable to make clear decision to involve military participation in either response, preparedness or other disaster management activities due to their uniform perhaps, the stigma or even the misperception on military actions that violate human rights dehumanized. I hope NGOs can start to evaluate and think more ahead on how actually to assist the communities that are affected, improve local capacity and improve and strengthen coordination and collaboration with multi stakehlder, including the military. After all, as humanitarian actors, we should aware that the funding that we receive is aimed to help the people in needs no atter how deliver the goods and service. As long there is a good communication and transparancy are built up, I am sure that there will not be any violation on humanitarian assistances that we conduct.

An Effective Emergency Response and Emergency Preparedness

An Effective Emergency Response and Emergency Preparedness

I start to write this article when i received a bunch of interview calls for this position. when we refer to the words of emergency response and emergency preparedness, people oftenly see it as more to rapid response actions, such as aid relief distribution, volunteers mobilization, search and rescue, etc. These actions do take part in this sector, yet again i would like to get into details about the mean of both words: emergency response and emergency preparedness.

Basically emergency response is any action that are taken to minimise the casualties, damages and lossess from disaster events. To do so, it needs a rapid respond time, an effective actions, and well planned or standard operation procedures. Some actions that are partly part of it, include: search and rescue, evacuation, damage and needs assessment, logistic management, aid relief distribution and basic needs fulfillment, protection, and recovery of vital asset and infrastructure. All of these actions should be done immediately within seconds after disaster struck. These to anticipate the greater loss of lives and minimize the impact and damages from disaster.

Emergency response should be done within one command and direction, an official and appointed institution or agency that is responsible and designated by the government and or local authority should leads the response. An effective emergency response can be achieved if there is a clear SOP (standard operating procedure) that is developed, agreed, and socialized in the communities. Through SOP, each of the agencies, whether government, private sectors, NGOs, universities, etc know exactly their role and responsibility during the emergency response. This SOP should consist of information related to: background of the area or location related, organization, task and function, mechanism of implementation, activities, coordination, communication, controlling, and information, and budgeting.

An SOP should be seen as a living document, instead of regulation or legal standard. Furthermore, an Emergency/Incident Command System (ICS) should be set. in Indonesia, the ICS is arranged by the BNPB as the National Agency for Disaster Management. within the system, the Incident Command is set based on several steps, include: early information, designation of rapid response team, emergency status, and establishment of disaster emergency response command. The process in setting up this command is regulated through Head of BNPB Regulation Number 10 Year 2008. Meanwhile, the Post for Disaster Emergency Response Command is legalized through Head of BNPB Regulation Number 14 Year 2010.

As for Emergency Preparedness is more in combination between preparedness and response, whereas all activities on preparedness that aimed to improve response mechanism. This can be conducted from family to national level. Some activities related to Emergency Preparedness, including: ensuring the availability of adequate emergencies supplies and access to basic needs, monitoring alert and warning service, establishment of information post or centre, coordination mechanism, standby personel, etc. Emergency Preparedness ideally should be conducted during slow onset disaster that can be predicted, such as flood, volcano eruption, landslide, drought and wild fire. There are several disaster situations that happened in Indonesia that were not well on emergency preparedness, this include: eruption of Mount Sinabung and Rokatenda, include the recent floods that happened across the provinces.

Despite the fact of enormous aid relief and assistances were provided by INGOs and NGOs in responding to both eruption and flood that happened in Indonesia recently, yet if looking on the high number of affected people and inequality of aid relief that was distributed, both show that there was lack of emergency preparedness in responding to disasters above. If take a closer look on Rokatenda Eruption, the activities of this volcano has been shown months before the eruption happened on August 2013. Yet, the main problem at that time was in relocating the people from Palue island where the volcano is located to the safer areas.

On November 2013, i received an invitation to assist in facilitating a training for IDPs in Maurole, one of the relocation area of Rokatenda IDPs. it took 4 hrs drive from the main city with rocky road and crossing over the hill and mountain. There were not much NGOs that are assisting the communities there, so far i can remember only CARITAS and HFI that exist there with the support from HRF from UN OCHA. Even, there is not local disaster management agency or BPBD that is established there.

Based on information from one of CARITAS's staff, due to limited access of clean water in Maurole (coastal and isolated area), everyday, this organization has to distribute clean water (1 gallon/household) to the communities. Beside NGOs, local catholic church also assisted in providing the needs of IDPs. Based on this case, the Province Government of NTT and NGOs with CSOs should work togather in  developing operational plan before the eruption. As NTT is one of the under developed province in Indonesia, the public including INGOs should also aware that they have the obligation in providing support to the communities in eruption area. I still remember when a Country Director (CD) from my previous INGOs said to me that "we dont have the capacity to respond the situation", This statement would not probably given by the CD if disaster happen in area that easily accesible and have a value to sell to donors, such as Jakarta Flood and EQ Aceh.

Same situation also happened with Sinabung eruption. I still remember that the volcanic activities of Sinabung was increasing since May 2013 and started on October 2013, coordination meeting cross agencies was conducted several times and continously in discussing the Sinabung response preparedness, but so far that i can remember, most people at that time were focusing in providing health services and support, also distributing mask. The eruption finally happened on January 2014. Yet, still there are a lot of complain on lack of aid relief and inadequate assistance in responding to the situation.

As for Jakarta Flood, the number of affected people increased compare to last year which was 134,662 persons from 90,582 or 38,672 households from 23,675, with number of area that affected decreased 186 to 100 villages in Jakarta area. I migh preassumed that the infrastructure in flood mitigation was working well, yet for improving the capacity of the communities in responding flood might not worked well. surprisingly, as most of humanitarian agencies are base in Jakarta. this might be interested for public to evaluate the related flood management in particular for flood preparedness and response, and how much money that have been put in managing flood in Jakarta. since not many organizations ever done cost benefit or socio economic impact study or even KAP Survey about it. Since the flood that happened in Jakarta is categorized as slow onset. Meanwhile in Manado, the total number of people that were affected from flood also increasing compare to last year from 41,683 people to 40,000 household.

As conclusion based on the analysis on above cases, i would concluded that in term of effectove response and preparedness that: 1) despite the fact that most of DRR Program that are being implemented by many agencies, incl.government and non-government, Emergency Response still the best interest to be intervened for getting more funding, 2) not much science base project or research are conducted by the agencies, most of them simplify by using tangible indicators, such as how many people have been trained, how many mitigation project have been conducted, etc, 3) not much forum or joint initative are being done by the agencies, each of them using their own budget for implementing the program instead having earmarked with the government and working in line with them, and 4) what do we know and what did we learn from previous disaster event that continuously happen in the same province? lack of warning, absent of information system, etc. In the end, i really wish that we can actually say that all works that we have been done or invested are contributing to build the nation's resiliency. Source of information: reliefweb and trusted national online media.


Fact on Rokatenda on 7-13 August 2013

http://www.volcano.si.edu/volcano.cfm?vn=264150

According to news articles, a partial lava-dome collapse at Paluweh on 10 August generated a pyroclastic flow that traveled N towards a beach village and killed at least 5 people. A volcanologist at the monitoring post for Paluweh noted that the eruption lasted seven minutes, and that the pyroclastic flow burned trees around the beach and villages, making it difficult to reach the victims. Pyroclastic flows continued to be reported hours after the initial eruption. Based on analyses of satellite imagery and wind data, the Darwin VAAC reported that an ash plume rose to an altitude of 4.3 km (14,000 ft) a.s.l. and drifted 130 km W.

News sources noted that a mandatory evacuation order had caused some residents to evacuate prior to the eruption on 10 August, but nearly10,000 still remained on the island. After the eruption, a rescue team was sent to evacuate about 2,000 people that remained inside a 3-km exclusion zone. A team member noted that rescuing people was difficult since they were reluctant to leave their livestock and homes, but also that the ground was hot and covered in 10-20 cm of ash. The VAAC reported that during 11-12 August ash plumes rose to an altitude of 1.8 km (6,000 ft) a.s.l. and drifted 110-130 km W. A news article noted that the eruptions were smaller on 12 August, but pyroclastic flows continued to be observed. The Alert Level remained at 3 (on a scale of 0-4).

Fact on Sinabung on 15-21 January 2014
http://www.volcano.si.edu/volcano.cfm?vn=261080
PVMBG described activity at Sinabung during 10-17 January based on observations from a post in the Ndokum Siroga village, 8.5 km away. Each day brownish white or gray and white ash plumes rose as high as 5 km, pyroclastic flows traveled 0.5-4.5 km E, SE, and S, and incandescent material was observed on the S and SE flanks as far as 3 km. Seismicity remained high, with constant tremor, hybrid earthquakes indicating a growing lava dome, and volcanic earthquakes. The number of low-frequency earthquakes continued to drop, however. The Alert Level remained at 4 (on a scale of 1-4). As of 20 January, the number of IDPs has increased to 28,536 persons or 8,967 households.The displaced families from 31 villages of four sub districts within Karo District are sheltering in 42 displacement centers.The Incident Command extends emergency phase from 18 to 28 January 2014

Fact on Jakarta and Manado' Floods
http://reliefweb.int/report/indonesia/indonesia-situation-updates-21-january-2014

• Jakarta Floods As of 21 January 2014, approximately 134,662 persons or 38,672 households in 100 urban villages are directly affected by floods, with 12 casualties. At least 62,819 persons are displaced and staying in 253 displacement centers. GoI has indicated the emergency readiness phase for 30 days starting from 13 January 2014 until 12 February 2014. National response has been mobilized. GoI indicated that it has the capacity to respond to both short and longer term needs created by the floods. GoI also welcomes technical assistance from the international community in the country, particularly for relief aid logistic management.
• Manado Floods: As of 19 January 2014, at least 15,000 persons from two cities and six districts are displaced. 19 casualties are reported. The Governor of North Sulawesi Province declared provincial emergency phase from 15 to 28 January 2014

Clusters in Emergencies, Their Roles and Functions

Clusters in Emergencies, Their Roles and Functions

by Yuniarti Wahyuningtiyas

I am interesting to write this article, since i realize that i might be one of the lucky humanitarian worker who has the opportunity working in different and various clusters in emergencies, these include WASH, Health, and Education. The clusters that i mention hereinafter are set based on General Assembly Resolution 46/182 on December 1991. it is aimed to ensure good coordination and accountability for adequate and appropriate humanitarian assistance. In Indonesia,among 11 clusters that are set by UN, only 10 that are exist, exclude Emergency Shelter. Yet, since i only have experiences in 3 out 10 clusters, so let me begin to give you their descriptions.

The WASH cluster is led by UNICEF, this cluster is in close partnership with Ministry of Health (MoH), under the Environmental Health and Disease Control Directorate. The WASH cluster does not only activate during emergency, in pre-disaster or normal situation, it supports the MoH Program, through CLTS or Community Led Total Sanitation. In which this progra, comprises of 5 components, including: stop open defecation, waste management, provision clean water, hygiene promotion, and sanitation. This cluster also support other MoH's Program, such as: global handwashing day, EASAN, etc. The WASH Cluster is also well known for its good coordination through regular meeting that they conduct in order to update each of this cluster's members activities and any other business agenda related to WASH. During emergency situation, this cluster coordinates other agencies that are working in WASH and develop its work plan and joint action in ensuring the accessibility and provision of adequate clean WASH facilities.

The Health cluster is led by WHO, this cluster is working closely with Centre for Health Cluster Management of MoH or PPKK. The Health cluster also has a regular coordination within its cluster members, it also bridges them with the MoH. Several activities that they have pre-disaster, including health cluster preparedness meeting and development of 4W Mapping on Health program that is running in 9 Regionals, as based on CHC Regional Center. During emergencies, the Health Cluster conduct joint Rapid Health Assessment (RHA) and in coordination with MoH, delivering the health services based on standard that has been agreed.

As for the Education cluster is led by Sae the Children and UNICEF. This cluster is working closely with the Ministry of Education and Cultural (MoEC). The challenge for this cluster is that the MoEC doesnt have specific focal point for the cluster. In each of its Directorate General, from early education, basic education, secondary education and higher education, each have their own particularly units that are dealing with disaster management, they can be either the Special Education and Special Education Services (PKLK) or Infrastructure and Facilities (SarPras) Unit. The good news is that the MoEC has published Regulation number 72/2013 that incorparates Emergencies School as part of special education and special education service that it's being focused on. As for the Education Cluster in Indonesia, its main focuses are on improving the capacity for better preparedness on education, communication, information system and also advocacy.

In overall, based on my point of view and experience, there are 3 major and crucial issues that become great challenges for the clusters, which are: 1) buying in of ownership of the clusters from the government, 2) active involvement and participation of the cluster members, and 3) also communication and cooperation intern and cross clusters.

In regards to point 1, as the cluster is led by international NGO and UN Agencies, it might be difficult for government to understand the overall concept of the roles and means of cluster, since most of them understanding it as a global concept which might not suit with the national and local context, in this case is related to souvereignity and code of conduct and ethic of government agencies. In regards to souverignity, in most disaster and crisis situations that happen in this country, many INGOs and UNs respond quickly to the situation, most of the time, they are insisting in proving assistance and aid which eventually in some cases lead to the point where they intend to drive the goernment policies and actions. This might left the government to have few room to move with their own way and if we see to the context of a nation, in some way there is a violation against the souvereignity. i didnt say that the existing of clusters might threaten the souverignity, yet the international agencies should take precaution and act carefully for the implementation of the programs that are conducted, which by means not working seperately and act alone. Instead, work in line with the existing government program and proving their supports and assistance continously with respect to local culture. For instance, through proving assistance and support for training the MoEC staffs on emergency school as referring to the international codes and guidelines, such as INEE MS (Interagency Network for Education in Emergencies Minimum Standard).

For point 2 on the active involvement and participation of cluster members, based on fact, it is rarely to involve the members, beside invite them to a meeting or have a joint actions during response. Having realize that not all agencies can be the members of clusters, there should be a clear view on the rights and obligation for the cluster members. For instance, what benefits that they receive after accepting as cluster members and what  obligations that they should give for the cluster? Through interactions and as based on the inputs from the cluster members during my previous assignment in several organizations where i was working in, the members expect that there are opportunity is given to them in improving their capacity to perform well as cluster, this can be done through training, workshop or reguler discussion. Other expectations are information sharing, joint work plan and sharing resources, such as develop e-bulletin or cluster board, sharing warehouse, exhange staffs, etc.

As for the point 3 or communication and cooperation intern and cross clusters, i would definately say that it is very rare to have 2 or 3 clusters working togather, beside during response. Although i would say that it is a reasonable thing to do. Taking into example for 3 clusters; WASH, Health and Education, by using entry point on school we can promote hygiene and conduct disease surveillance and nutrition watch for children in flood prone area or through Posyandu in volcano eruption prone area, we can actually promote medical referral, clean water and storage and child friendly space or through community led total sanitation, we can promote hygiene and sanitation in school that is located in the community.

Despite the fact that it might sounds easy to implement all expecattion and facing the challenges, yet the cluster leads must improve their own capacity and build the government and members thrust first, before they can move ahead with all of these ideal view of role and function of clusters. Furthermore UN OCHA (United Nations for Office Coordination on Humanitarian Affairs) has important role in bridging these clusters with the government, which include BNPB and related ministries as what it is trying to be improved at time being. In overall, Indonesia as a country that seems never quit having many disasters on its plate, the government should taking maximum advantage in adapting the international code and knowledge to be applicable in managing in country catastrophe and improving local capacity and respect the local culture and indigenous which i believe that 10 years from now, Indonesia can stand alone with its own feet in managing the crisis and disaster situation and even providing its expertises to other nations.