Report: Extending Best Practices in Early Warning Systems for Building Community Resilience

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1 Report Team: Universitas Gadjah Mada: Teheu Faisal Fadthani, Dwikorita Karnawati, and Wahyu Wilopo University of Hawaii: Cheryl Anderson Pacific Disaster Center: Heather Bell Report: Extending Best Practices in Early Warning Systems for Building Community Resilience Submitted by: Universitas Gadjah Mada: Teuku Faisal Fathani, Dwikorita Karnawati, Wahyu Wilopo University of Hawaii Social Science Research Institute: Cheryl Anderson Pacific Disaster Center: Heather Bell, Ray Shirkhodai Prepared for: R3ADY Asia-Pacific November 26, 2014

2 Executive Summary In August 2011, the current project was initiated in a working group on applied research as part of the development of the Asia Pacific Disaster Risk Reduction and Resilience Network. The applied research discussion group identified the importance of working from the community level to build resilience, but also the need to understand the ways that the lessons learned from successful projects could be shared and adapted to other communities and could further be supported thorough all levels of government. The participants further stressed the need to identify a project that could be used to scope out the process for scaling and transferring best community disaster risk reduction practices. Thus emerged the first phase of a collaboration among Universitas Gadjah Mada (UGM), the University of Hawaii, and the Pacific Disaster Center to look at the processes underpinning success of community early warning systems (EWS). Three workshops and symposiums were conducted in Yogyakarta, in addition to several key informant interviews and group discussions that enabled an evaluation of the current best practices initiated by UGM. Based on these reviews, the team identified gaps, needs, and opportunities for replication in other communities and expansion beyond the target communities. The community-based early warning system (EWS) project is grounded in disaster risk reduction and resilience, and therefore, has the potential to link the local, regional, and national processes through integrated planning and policy development. Building on UGM Early Warning System Success UGM began working with communities on implementing early warning systems in For landslides, floods, and volcanic lehar movement, simple devices were installed in communities following a geological hazard risk assessment conducted by UGM professors. Not only were the communities trained to use the equipment to monitor the threat of hazards, but UGM developed a public awareness and education program with risk mapping and vulnerability assessments for each community through multidisciplinary student service practicums for two months in each community. The process involved the development of evacuation maps, initiation of agreements with sister communities or identification safe havens for evacuees, and drills to ensure awareness about how to evacuate. UGM worked closely with BPBD officers in the district to ensure support and assistance from the local disaster managers. Evaluations of the projects demonstrated the importance of engaging communities in a full hazard risk and vulnerability assessment, preparedness, and mitigation program rather than only installing early warning equipment; however, the successes in communities varied. UGM considered the differences in the types of EWS, the hazards they addressed, and the socioeconomic characteristics of the communities involved. The communities that demonstrated ownership of the EWS and ensured monitoring and maintenance of the system had used the system to save lives. Furthermore, they developed economic activities that would help to fund ongoing maintenance of the system. The communities also worked closely with their Regional Disaster Management Agency (BPBD) representatives. In addition, the BPBD i

3 worked with non-governmental organizations and civil society partners to engage in best practices for disaster risk reduction and resilience. Addressing Technology Gaps The technology and data problems have been comprehensively reviewed and addressed to the extent possible given current resources and support. Development of the systems requires technical hazard assessments to determine the extent of the hazard and areas for monitoring and equipment installation. The UGM team has designed a system that can collect data in a centralized location, but there is still a need for improvements in server capacity, consideration of reach of radio signals and need for repeaters, and development of system redundancy. As the EWS is extended to other villages and regions, it is important to develop the capacity of the system to handle added data. Part of addressing the technology gaps requires consideration of socioeconomic needs in the community in order to ensure that the community takes ownership of the monitoring to manage and reduce their risks. Landslide Early Warning System - The technologies that UGM uses are very simple and easy for the community to understand. Devices were developed by UGM team members specifically for use in local villages where humidity and other environmental factors posed challenges for maintenance. The first devices required manual recording, but these systems have become increasingly sophisticated. More recent EWS systems automatically send data to BPBD and UGM advisors to monitor the potential for landslides and make determinations for evacuation with community leaders. Volcanic River and Lehar Early Warning System The instrumentation for early warning system similarly allows the community to visualize the impending threat and evacuate communities prior to the incident. Sand mining operations using the silt from the volcanoes provides an economic opportunity that enables communities to recover. InAWARE The Pacific Disaster Center has worked at the regional level with ASEAN to develop the DisasterAWARE program to improve decision support capabilities for disaster managers. PDC has worked with the government of Indonesia through BNPB to create InAWARE specifically for monitoring hazard risks in Indonesia. The objectives of the project are to enhance access to automated international, regional, and national hazard information, to improve information sharing among agencies, and to enhance dissemination of alerts and warnings to at-risk communities. InAWARE is currently being tested with local BPBD throughout Indonesia. This will provide improved hazard information for the local data centers. Data Centers and server notification at district levels The BPBD have begun to develop data centers that link with UGM. As technology advances, these data centers can be used to store and distribute data. Furthermore, the data centers provide operational and technical support to communities in determining the risk for hazard occurrence and the need to evacuate. The data can be linked with national systems to demonstrate the need for improved support and coordination of resources. ii

4 Sustaining Institutional Support The institutional support at all levels can be strengthened by incorporating lessons from the UGM Early Warning System. The approach has initially involved engaging communities, while simultaneously engaging the district level disaster managers to ensure that they are able to assist in serious situations, such as evacuations. BPBD involvement has been critical in marshalling resources to ensure the safety of local communities. Several key mechanisms for ensuring institutional support involve: Development of Memorandums of Understanding (MOU) that establish the working relationship and expectations of the collaboration Development of Standard Operating Procedures (SOP) and Concept of Operations ensure that roles and responsibilities are in place in the context of different hazard events and that links at various levels from community to district (BPBD) to national (BNPB) levels are integrated in operations Disaster Risk Finance and Budgeting ensures consideration of funding and varied types of mechanisms, including insurance and governmental budgeting, to reduce risks and provide resources for response and recovery University collaborations have demonstrated the ability to extend and expand resources and training efforts. Successful students from UGMs program have moved to other regions and provide similar support from their universities, while still maintaining professional connections with UGM researchers. R3ADY Asia-Pacific network provides a resource for linking partners and activities focused on risk reduction. Maintaining Community and Stakeholder Engagements The process of working in communities for the early warning systems has been successful because of the focus on the process establishing resilience. The team engages hazard awareness activities, develops hazard mapping tools, conducts risk and vulnerability assessments, identifies evacuation routes, establishes relationships with agencies and other communities for support, provides community maps, and conducts training and drills. These ensure that communities continue to engage with BPBD and UGM. The approach further brings in partners with different backgrounds and expertise to support risk reduction efforts, such as using training materials from the International Federation of Red Cross and Red Crescent Societies (IFRC) and running drills with BPBD. Facilitating Continued Information Exchange The development of advanced data tools, MOUs on data sharing protocols, and the establishment of data centers ensures that information will continue to be gathered and shared for use in disaster risk reduction and resilience. Participation in a network at local, district, national, and international/regional levels provides further opportunities for improving data gathering, storing, and sharing. iii

5 Identifying Funding Opportunities and Approaches for Securing Private Engagement One of the lessons learned in comparing successes of different communities with early warning systems has been the identification of approaches to sustain the risk reduction efforts. The communities need to have economic opportunities to support the maintenance of the systems. While the lehar-affected communities have been able to develop sand mining and tourism opportunities, some of the landslide rural areas may need to find agricultural products or ecotourism adventure activities to support their community. In addition, the team discovered that partnering with the private sector that has experience with community-based development can be important for establishing and sustaining best practices and systems maintenance. Sustaining the EWS as part of a Resilience Strategy The UGM experience in communities has identified key factors for ensuring that the early warning system is sustained as part of the overall resilience strategy for communities, which extends to regional and national resilience. Some of the critical factors for ensuring longevity include: Training students through the university to engage in multidisciplinary practices for risk reduction. Training students in technical aspects of the EWS that provide employment opportunities, but that further expand the professional community for appropriately implementing EWS rooted in disaster risk reduction processes Maintaining and improving the physical system by communities and ensuring the sharing of data and information through the development of data centers and use of software that adds value Consideration of social, economic, and livelihoods impacts from disasters and ensuring that funding and resources can be provided to maintain the systems. Engagement of partners at all levels should be conducted to consider long-term planning and resource identification, such as the development of BPBD action plans. Moving Forward The project has demonstrated that community engagement in appropriate technologies provides a strong foundation for disaster risk reduction and resilience strategies. District disaster managers and national level disaster management are able to improve decision-making through integration and use of risk data, training, and enhanced local resources to ensure expansion and extension of best practices, and more importantly, significant reduction in the loss of lives and livelihoods in communities of Indonesia. The project demonstrates opportunities from collaborating at all levels of disaster risk reduction among government, private sector, and civil society partners. Recommendations from the project are that the information and data is used to expand the BNPB toolbox. Since UGM is the lead university for landslide EWS, they will provide the context for setting thresholds and early warning system information for others. Other EWS toolboxes iv

6 will build and expand based on expertise to ensure that systems can be adapted for use in other areas. Systems, such as InAWARE, will aid in the integration of data products to improve the understanding of hazards and early warning systems, and improve information dissemination. In addition, partners have encouraged the team to build on the initial workshops with BPBD officials in the development of action plans with BNPB. This will ensure that government develops capacity and understands resource requirements for institutionalizing disaster risk reduction. Since different districts have various risks and needs at the community level and have advanced at different paces, workshops that enable BPBD to share experiences would be beneficial for expanding the lessons for implementing early warning systems. The continued and ongoing engagement of national and district level disaster managers can ensure that the institutional support and arrangements are channeled for community-based activities, thereby, expanding the opportunities, knowledge, and resources systematically. v

7 Table of Contents Executive Summary Table of Contents Overview of the Lessons from the Early Warning Project Addressing Technology Gaps - What are the ways that we can address technology gaps through scaling up and out? - InAWARE - PDC work with BNPB - Data Centers and server notification at district levels - Repeaters Sustaining Institutional Support - MoUs - SPOs - Concept of Operations - Budget/Finance - University Collaborations internationally - R3ADY network assistance Maintaining Community and Stakeholder Engagements - Sustained interactions RVA assessments - Service & support for technology - Integration in DRR planning at District, Provincial, National levels - Outreach, drills, training Facilitating Continued Information Exchange - Network participation - Updating data - MOUs Identifying Funding Opportunities and Approaches for Securing Private Engagement - Interactions with CSOs and NGOs (Mercy Corps) Sustaining the Early Warning System as part of a Resilience Strategy - Educating students/practical experience, developing long-term capacity - Maintaining physical system funding, maintenance, training - Enhancing social/cultural/livelihood systems building activities locally to finance DRR activities, building ownership of community into the operations (ex. Linking Mercy Corps w/community to support activities) - Long-term planning monitoring and evaluation Moving Forward Attachments Appendix A. Meeting and Workshop Participants. List of Figures vi

8 Appendix A. Meeting and Workshop Participants. 1) Disaster Risk Reduction and Resilience Symposium June 2013 Roundtable on Early Warning Systems Participants: Universitas Gadjah Mada (UGM), University of Hawaii (UH), Pacific Disaster Center (PDC), BNPB (National Disaster Management Agency) coordinating with 10 Universitas with expertise in DRR (including UGM for Landslide expertise), U.S. Pacific Command (PACOM), Institute of Social Work, Hope Worldwide, Universitas Islamic Indonesia (UII), Mercy Corps 2) BPBD Meeting 9 May 2014, Yogyakarta Coordination meeting of APDR3-UH-PDC-UGM and Disaster Management Agency (BPBD) Directors in Yogyakarta (DIY) and Central Java Date and Time: 9 May 2014 ( am) Venue: Department of Geological Engineering, Faculty of Engineering, UGM Participants: - Ms. Jainey Bavishi (Executive Director of APDR3) - Dr. Cheryl Anderson (University of Hawaii) - Dr. Heather Bell (PDC) - Dr. Sugeng Sapto Surjono (Head of Geological Engineering Department) - Dr. Wahyu Wilopo (UGM) - Dr. Teuku Faisal Fathani (UGM) - Mr. Joko Sudibyo (BPBD Magelang District) - Mr. Dwiwantoro (BPBD Bantul District) - Mr. Nugroho (BPBD Karanganyara District) - Mr. Salamun (BPBD DIY / Yogyakarta Special Province) - Mr. Sujarwo (BPBD Kulonprogo District) - Mr. Budhardjo (BPBD Gunung Kidul District) - Mr. Agus Purwanto (BPBD Central Java Province) - Mr. Rujedy (BPBD Klaten District) - Mr. Murtiarto (BPBD Sleman District) 3) BPBD Workshop 5-6 November 2014, Yogyakarta Participants: BPBD Kulon Progo (Mr. Wahyu Budarto), BPBD Sleman (Mr. Joko Lelana), BPBD Magelang (Mr. Joko Sudibyo), BPBD Klaten, BPBD Karanganyar (Mr. Aji Pratama Kristanto), BPBD Central Java (Ms. Retno), BPBD Bandung Barat (Mr. Suryana), BPBD North Sulawesi, BPBD West Papua, UGM (Dr. Teuku Faisal Fathani, Dr. Wahyu Wilopo), UH (Dr. Cheryl Anderson), PDC (Dr. Heather Bell), R3ADY Asia-Pacific (Ms. Jainey Bavishi) vii

9 4) Partners Workshop 7 November 2014, Jakarta Jeong Park Dhannan Sunoto Hideki Katayama Andy Revianto Taruli Aritonang Rekha Shreshtha Teuku Faisal Fathani Wahyu Wilopo Malcolm Foo Yussak Oppusunggu Bharat Pathak Jainey Bavishi Heather Bell Cheryl Anderson DM Advisor, Australian Embassy Jakarta Project Lead, Disaster Management DAI ASEAN-US Partnership for Good Governance, Equitable and Sustainable Development and Security (PROGRESS) Advisor, Disaster Management and Water Resources, Japan International Cooperation Agency (JICA) Indonesia Office Sampoerna Sampoerna Programme Officer (Emergency), UNICEF UGM UGM Advisor, Consulting, PT PricewaterhouseCoopers Consulting Indonesia Program Specialist, USAID Indonesia Program Director for Disaster Risk Reduction & Climate Change Adaptation, Mercy Corps Executive Director, R3ADY Asia-Pacific Director, Applied Sciences Pacific Disaster Center Director, Hazards, Climate & Environment Program, University of Hawaii Social Science Research Institute viii

10 Appendix B. Action Plan Development with BPBD, November 5-6, Developing Multi Disaster Early Warning Systems 1st 4th month 5th 8th months 9th 12th months Finance: - APBD (pre, during, post-disaster); - APBN (contigent work pattern, emergency response, patterned aid grants) and - Private Sectors Coordination meetings: - BNPB; - BPBD (province, district & local); - SKPD; - Disaster Risk Reduction Forum; - NGO and - Private sectors Training Management & Finance Coordination: - Journalists; - Military & Police; - Red Cross, Boy Scouts & Basarnas; - RAPI; - BMKG, PVMBG, PSBA, PU and - Department of Health. Financial/physical monitoring and evaluation Financial/physical monitoring and evaluation Coordination: - BNPB; - BPBD (province, district & local); - SKPD; - Disaster Risk Reduction Forum; - NGO and - Private sectors Accountability reports Accountability reports Laws: - Resolution and - Contingency plans SOP: 0

11 - Disaster occurrence reporting; - Information provision and - Resources mobilization MOU: - Private sectors/third party Accountability reports Equipment survey according to the hazards condition EWS installation in priority locations EWS maintenance Technology Determination of appropriate EWS for each hazard and area Determination of the location in accordance with the vulnerability level EWS operational in disaster prone area MOU with local government EWS socialization to the community and stakeholders EWS evaluation. Coordination on EWS procurement Proposed EWS operator. Training on EWS operational Development of legal regulations (regional regulations/district regulations) Trainings Human Resource Increase in the capacity of the personnel. Development of SOP for early warning system System trial and evaluation Training Managerial Training Reporting Training Community/ Society Socialization on hazard risk to the community Development of SOP for early warning response EWS operational and maintenance Establishment of community disaster preparedness SOP trial and simulation Simulation and evaluation of the further plans 1

12 Development of the contingency plans for each hazard EWS installation at the community level Explanation: BPBD BNPB BMKG PVMBG : : Local Disaster Management Agency : National Disaster Management Agency : Geophysics, Climatology, and Meteorological Agency Volcanology and Hazards Mitigation Center Kemen PU : Ministry of Public Works Basarnas : Indonesian Search and Rescue Agency RAPI SKPD APBD APBN : Indonesian Amateur Radio Community : Work Unit Area : Budget Revenue and Region Expenditure : Budget Revenue and Nation Expenditure 2