Enhancing Dam Safety and Public Protection through InaSAFE- Based Emergency Action Plan and Contingency Planning KNOWLEDGE NOTE JIT DAM SAFETY AND DISASTER PREPAREDNESS Enhancing Dam Safety and Public Protection through InaSAFE- Based Emergency Action Plan and Contingency Planning 4 Foreword Indonesia’s exposure to multiple hazards has the potential to impose significant economic and financial costs. During major disaster years the costs associated with natural disasters can reach 0.3 percent of national GDP and as high as 45 percent of GDP at the provincial level. Following the 2004 Indian Ocean Tsunami, the government allocated more than US$7 billion for reconstruction in Aceh and Nias and approximately US$2 billion following the 2010 Mount Merapi volcanic eruption. With increasing urbanization and the need to secure water resources for productive purposes, dam safety is one of a number of emerging hazards in Indonesia. The Government’s experience with the failure of the Situ Gintung Dam in 2009 and that of the Way Ela Natural Dam in 2013 have re-enforced the importance of proper planning and the need for continuous improvement and innovation in disaster preparedness, along with inter-governmental coordination. A dam safety workshop organized by the World Bank and the Global Facility for Disaster Reduction and Recovery in Tokyo, April 2017, bought together a range of practitioners from across East Asia to explore the legal and institutional frameworks, along with the tools available, for improving planning and emergency preparedness. One of the key conclusions was recognition of the need to increase awareness and action on dam safety in Indonesia. The InaSAFE software developed by BNPB in partnership with the Australian Government and the World Bank is central to supporting the Government in improved dam safety and disaster preparedness. The software enables disaster managers and decision makers to prepare and simulate natural disaster scenarios, to predict the magnitude of their impacts and to use the result to develop an emergency preparedness plan at local level. With active support from the World Bank and the Ministry of Public Works and Housing (MPWH) under this GFDRR JIT support, InaSAFE has been further developed to allow for the analysis of dam failures and preparation of appropriate response mechanisms. This initiative represents an important collaboration with MPWH and BNPB as well as the community groups. I would like to offer my appreciation to the Ministry of Public Works and Housing and the World Bank for this support in improving and modernizing the Indonesian dam disaster preparedness. I believe such coordinated efforts should be sustained and the application extended to other dams in the portfolio. This will not only bring benefits to the communities downstream of the Jatigede and Gintung dams, as the focus under this initiative, but also to communities, dam operators and disaster management specialists involved in large dams across Indonesia. Jakarta, December 2017 B. Wisnu Widjaja Deputy Minister for Prevention and Preparedness National Disaster Management Authority 5 Foreword The development and sustainable management of water resources is central to securing Indonesia’s continued economic growth and prosperity. Growth in water withdrawals compared to the available supply, coupled with the island geography and lack of storage, is predicted to lead to high levels of water stress by 2040. In response, the Governments has committed to the development of 65 new dams over a five- year period estimated to cost more than IDR 70 trillion. The development of dams is an important contributor to economic prosperity and poverty reduction measures by storing water for productive purposes, and these new dams will increase the total storage volume by 6.5 billion cubic meters to serve an estimated 460,380 Ha of the country’s rich irrigated land. The majority of existing dams (85 percent) are owned by the MPWH Ministry of Public Works and Housing and operated by either the river territory organizations and state-owned corporations. Of these, 110 dams are registered as single purpose, primarily bulk water supply for irrigation under the MPWH. Of the 49 multi-purpose dams, 23 include a combination of water for irrigation and domestic supply, 13 combine irrigation with hydropower, while 13 combine irrigation with hydropower and domestic water supply. Dam owners are required to prepare an Emergency Action Plan (EAP) for the unlikely event of a dam failure. More than 80 have been prepared to date based on the EAP Guidelines and Hazard Classification approved by the Indonesian Dam Safety Committee in 1999. In preparing the EAP, the dam owner should consult with downstream communities and public safety is at the center of the Governments’ efforts. With the development of new dams, increasing urbanization and the changing nature of the Indonesian landscape ensuring appropriate measures for enhancing public safety and economic security through collaboration is critical to continued success. Jakarta, December 2017 Imam Santoso Director General of Water Resources Ministry of Public Works and Housing 6 Acknowledgements This Knowledge Note summarizes the outputs from Just-in-Time support provided by the Global The team from the National Disaster Management Facility for Disaster Reduction and Recovery Authority (BNPB) included B. Wisnu Widjaja (Deputy (GFDRR) to The Coordination of Dam Safety and Minister for Prevention and Preparedness), Medi Disaster Preparedness in Indonesia. This was Herlianto (Director for Response Preparedness), executed by the World Bank as part of the support Bambang Surya Putra (Assistant Director for Early to the Government of Indonesia under the Dam Warning), Maryanto (Supervisor for Network System Operational Improvement and Safety Project (DOISP) Integration), and PASTIGANA (Center for Situation in joint collaboration with the National Disaster Analysis of Disaster Preparedness). Management Authority and the Directorate General for Water Resources in the Ministry of Public Works The team from the Ministry of Public Works and and Housing. Funding of US$50,000 for this project Housing (MPWH) included Agung Djuhartono was made available under the GFDRR Multi-Donor (Director of Operation and Maintenance), Adek Trust Fund (MDTF) for Mainstreaming Disaster and Rizal (Secretary of Central Project Management/ Climate Risk Management in Developing Countries, Implementation Unit, Dam Operational Improvement Climate Change Thematic Program, Just-in-Time and Safety Project), and Nova Swara (Section Head Capacity Building and Advice. of Operation and Maintenance for Dams and Lakes). The World Bank team was led by Marcus Wishart The findings, interpretations, and conclusions (Senior Water Resources Specialist), David Ginting expressed in this work do not necessarily represent (Water Resources Engineer), and Ruby Mangunsong the views of these individuals or their organizations. (Disaster Risk Management Consultant), and included Agus Jatiwiryono (Dam Safety Specialist), Ilham Abla (Irrigation Specialist), Vica Bogaerts Photo credits: Dam Operational Improvement and (Disaster Risk Management Specialist) and Nina Safety Project (DOISP), Ministry of Public Works and Herawati (Program Assistant). Technical support Housing (MPWH), National Disaster Management was provided by Mohammad Fadli and Faizal Authority (BNPB), Haryono Sirait, Ruby Mangunsong. Prabowo (Geo Enviro Omega) and Humanitarian Openstreetmap Team (HOT) Indonesia. The team is Design, layout, infographic: Indra Irnawan grateful for the support provided by Cindy Robles (Disaster Risk Management Specialist) and Cristina Otano (Senior Partnership Specialist) from the GFDRR, including Jolanta Kryspin-Watson (East Asia and the Pacific Regional DRM Coordinator). 7 Abbreviations AWLR: Automatic Water Level Recorder ICOLD: International Commission on Large Dams B(B)WS: Indonesian River Basin Organization (Balai IDR: Indonesian Rupiah Besar) Wilayah Sungai) INACOLD: Indonesian National Committee on Large Bappeda: Regional Development Planning Agency Dams (Komite Nasional Indonesia untuk (Badan Perencanaan Pembangunan Bendungan Besar – KNI-BB) Daerah) InaSAFE: Indonesia Scenario Assessment for BIG: Geospatial Information Agency (Badan Emergency Informasi Geospasial) InaWARE: Indonesia All-hazards Warning and Risk BNPB: National Disaster Management Authority Evaluation (Badan Nasional Penanggulangan JakSAFE: Jakarta Scenario Assessment for Bencana) Emergency BMKG: Indonesian Agency for Meteorology, JIT: Just in time support Climatology and Geophysics (Badan LAPAN: National Institute of Aeronautics and Meteorologi, Klimatologi dan Geofisika) Space (Lembaga Penerbangan dan BPBD: Regional Disaster Management Authority Antariksa Nasional) (Badan Penggulangan Bencana Daerah) MHEWS: Multi Hazard Early Warning System BPS: Statistics Indonesia (Badan Pusat MPWH: Ministry of Public Works and Housings Statistik) MoU: Memorandum of Understanding DOISP: Dam Operational Improvement and Safety NGO: Non-governmental organization Project OSM: OpenStreetMap DGWR: Directorate-General of Water Resources PJT: Perusahaan Umum Jasa Tirta (State DIBI: Indonesian Disaster Database (Data Owned River Agency) Indeks Bencana Indonesia) PMI: Indonesian Red Cross (Palang Merah DMU: (Dam Management Unit) within B(B)WS Indonesia) DSU: Dam Safety Unity PMF: Probable Maximum Flood DMI: Disaster Management Innovation PODES: Village Potential Statistics Dataset (Data DSC: Dam Safety Commission (Komisi Potensi Desa) Keamanan Bendungan) QGIS: Quantum Geographic Information System EAP: Emergency Action Plan Software Package GDP: Gross Domestic Product RBO: River Basin Organizations GFDRR: Global Facility for Disaster Reduction and RENSTRA: Strategic Plan (Rencana Strategis) Recovery RPJMN: National Mid-term Development Plan GIS: Geographic Information System (Rencana Pembangunan Jangka Menengah HOT: Humanitarian OpenStreetMap Team Nasional) Contents INTRODUCTION INDONESIAN DISASTER RISK MANAGEMENT AND DAM SAFETY 13 Indonesian Natural Disaster Profile 15 Indonesian Dam Safety 19 Institutional framework 21 Legal framework 22 Existing works in the Indonesian Dam Safety Management INDONESIA SCENARIO ASSESSMENT FOR EMERGENCY (InaSAFE) 25 Impact analysis in InaSAFE 28 JIT Dam Safety and InaSAFE Development EMERGENCY ACTION PLAN AND CONTIGENCY PLAN 35 Emergency Action Plan (EAP) 39 Contingency plan 43 General comparison 43 JIT Support to EAP and Contingency Plan Preparation WAY FORWARD: InaSAFE-BASED EMERGENCY ACTION AND CONTIGENCY PLANNING? 50 Inter-institutional cooperation 50. Compatibility of BNPB-MPWH database 51. Participatory mapping 51. Disaster Risk Communication 51. BNPB-MPWH joint working group 60 References 10 Introduction Enhancing Dam Safety and Public Protection through InaSAFE-Based Emergency Action Plan and Contingency Planning 11 Indonesia has emerged over the last decade provisions of the RPJMN into a Strategic as a vibrant middle-income economy, with a Plan (RENSTRA: Rencana Strategis) that GDP per capita of USD 3,603 in 2016. During provides detailed targets in support of the period of 2000-2013, the average annual the vision and objectives of the RPJMN. real GDP growth of the country reached 5.9 Specifically, the MPWH has targeted the percent and the income per capita has more construction of 65 new dams over five years, than tripled in nominal terms compared along with the rehabilitation of 46 existing to the preceding decade1. Over the same dams and 1,175 tanks (embung)3. Dams and period, the population has steadily grown reservoir are expected to provide economic (national average rate of 1.5 percent per empowerment and security to the poor year) with the urban population increases and other vulnerable groups by providing at more than twice the national growth rate, protection against flooding and minimizing at an average annual rate of 3.4 percent, the impacts associated with droughts, while which has positioned the country’s urban also improving the availability and reliability areas among the fastest urbanizing cities of irrigation supply to the agricultural sector; in the Southeast Asia region. Despite these a sector of which employs the majority of gains, poverty reduction has stagnated over the country’s poor. Given its central position recent years and inequality is increasing in the poverty eradication effort, dams rapidly. As measured by the current national and reservoirs must be well managed and poverty rate of 11.3 percent, there are 28 maintained through a good operation and million poor people in Indonesia, with a maintenance condition in order to sustain near zero decline in 2014. Consequently, the the service level, prolong the productive asset Consumption Gini coefficient, an indicator of life and maintain the inherent dam failure economic inequality, rose from 30 to 42 over risk within an acceptable level by preserving this period (among the fastest widening the structural stability throughout its lifespan. rates in the region). Dam safety is increasingly important to The Government has outlined its ensuring public safety and economic commitment to address these challenges security in Indonesia. The challenges of in its National Mid-Term Development Plan rapid population growth and urbanization, (RPJMN 2015 - 2019) by focusing on human, coupled with increasing climate community and infrastructure development; variability and rainfall intensification, which is expected to increase the productivity will accentuate the downstream hazards and narrow the gap2. The RPJMN has a strong with the development of 65 new large emphasis on water resources management dams. Most climate models predict the and infrastructure development, which already constrained availability of water are seen as central to contributing directly will be exacerbated in many areas along to the goals of water security, food self- with further increases in the probability sufficiency and energy, with the ultimate and frequency of water related disasters, target of improving the welfare of the people such as floods, especially in densely of Indonesia. The Ministry of Public Works populated urban areas near the coast. and Housing (MPWH) has translated the The poorest will bear the brunt of this 12 Knowledge Note JIT Dam Safety and Disaster Preparedness burden as they are typically the most vulnerable to better plan the emergency response. The software is the impacts of drought, floods, and landslides and focused on examining the impacts of a single hazard pursue livelihoods that are highly dependent on on population and its living environment. While climate-sensitive sectors. The importance of dam the current version includes natural flooding, along safety was highlighted by two widely-reported dam with earthquakes, tsunamis and volcanic eruptions, failures; Gintung Dam (Province of Banten) in 2009 there have been no considerations of infrastructure (previously named Situ Gintung) and Way Ela Natural related events, such as dam failures. Dam (Province of Maluku) in 2012. These events have urged the government to improve its disaster The objective of the Just-in-Time initiative was to preparedness and planning in order to minimize the support BNPB and the MPWH in expanding the potential impact associated with dam failures. analytical scope of the existing InaSAFE through the integration of dam safety aspects into InaSAFE and In order to improve the capacity for disaster to assist in the preparation of an InaSAFE-based preparedness, the National Disaster Management contingency planning to be used in the event of a dam Authority (BNPB) has been collaborating with Global failure. This was realized through five main activities: Facility for Disaster Reduction and Recovery (GFDRR) and the Australian Government to develop and 1. providing support to expand the analytical scope continuously refine an open-source natural hazard of the existing InaSAFE version to include dam impact assessment software InaSAFE (Indonesia failure impact analysis, Scenario Assessment for Emergency). InaSAFE 2. facilitating the collection and exchange of produces realistic natural hazard impact scenarios relevant input data between BNPB and MPWH, from different technical and social data to inform 3. facilitating additional data acquisition through better planning, preparedness and response participatory mapping, activities. It provides a simple but rigorous way to 4. providing introductory training to BNPB, MPWH combine data from scientists, local governments and other relevant parties on InaSAFE, and and communities to provide insights into the likely 5. organizing workshop on InaSAFE-based impacts of future disaster events that can be used to Emergency Action and Contingency Planning communicate the risk with key stakeholders and to Scope of the JIT support for Dam Safety FIgure 1.1 Just In Time Support - Dam Safety Integration of Dam Safety into InaSAFE Existing Dam failure Data data analysis acquisition: collection inclusion Participatory and into InaSAFE mapping exchange Preparation of InaSAFE-based contingency planning Training on the Workshop on utilization of the InaSAFE-based EAP and expanded InaSAFE contingency planning “Dam safety is increasingly important to ensuring public safety and economic security ” 14 Indonesian Disaster Risk Management and Dam Safety Enhancing Dam Safety and Public Protection through InaSAFE-Based Emergency Action Plan and Contingency Planning 15 Indonesian Natural Disaster Profile The Indonesian Disaster Database (DIBI), A general assessment was carried out developed and maintained by BNPB, by BNPB in 2016 to estimate the impact registered more than 15,800 natural disaster magnitude of different natural disasters on events across the archipelago in the period the environment, population, infrastructure of 2005-2015 (figure 2.1). The majority of and economic activities5. The result of these natural disasters, about 78%, are this exercise (table 2.1) reaffirms hydro- hydro-meteorological (including: flooding, meteorological disasters as the dominant drought, extreme weather, extreme wave and challenge in Indonesia. This challenge is land and forest fire)4. This is significantly expected to grow due to the increasing higher than the occurrence of geological variability of climate, intensification of disasters (including: earthquakes, volcanic rainfall and the rapid population growth eruptions, landslides and tsunamis). and urbanization. Natural disasters in Indonesia (2005 – 2017)4 FIgure 2.1 625 595 840 634 325 317 545 356 geology hydrometeorology 141 292 158 126 76 539 679 729 979 830 1129 1299 1516 1431 1362 1155 1688 1578 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 16 Knowledge Note JIT Dam Safety and Disaster Preparedness Potential impact of major natural disaster in Indonesia5 Table 2.1 Flooding (including 42,105,133 13,192,322 109,451,827 221,009,360 155,878,446 flash flood) Extreme weather 106,582,476 - 244,295,774 11,972,702 3,088,869 Extreme wave and 1,888,085 460,252 4,917,327 22,042,350 1,290,842 abrasion Drought 163,101,784 63,781,004 228,163,266 - 192,737,143 Land and forest fire 86,457,259 41,856,289 - - 59,036,830 Earthquake 52,374,614 - 86,247,258 466,689,834 182,185,171 Volcanic eruption 394,324 139,676 749,126 2,695,427 12,613 Landslide 57,418,460 41,337,707 14,131,542 78,279,825 75,870,343 Tsunami 961,133 119,688 3,702,702 71,494,821 7,976,358 Impact Exposed natural Exposed Infrastructure Impact of coverage environment population loss economic (Ha) (Ha) (Million IDR) activities (Million IDR) Enhancing Dam Safety and Public Protection through InaSAFE-Based Emergency Action Plan and Contingency Planning 17 Indonesian Dam Safety: The government’s plan to construct 65 new dams between 2014 and 2019 is aimed at reducing this current portfolio and inter-island discrepancy by significantly expanding development the water storage capacity of other islands (mainly Sulawesi, Kalimantan and the Nusa Tenggaras) as Indonesia has a long history of dam development part of the broader goal of water security, food with an extensive network of more than 2,200 dams. security and energy security. The overall cost of this Of these, 213 are classified as large under the MPWH program is estimated at more than IDR 70 Trillion Ministerial Regulation No. 27/PRT/M/2015. The (around USD 5 billion). Once completed, this will majority of these large dams (184 as of 2017) are increase the total storage volume by 6.5 billion cubic owned by the MPWH, with the remaining owned and meters and provide water for an estimated 460,382 operated by private corporations or state-owned ha of irrigated land. enterprises. These serve a wide range of purposes (table 2.2), with irrigation registered as the sole usage for 110 dams within the current portfolio. Challenges to Dam Safety in The distribution of dams in Indonesia demonstrates Indonesia a strong development asymmetry across the archipelago (figure 2.2). More than 40 percent of the Indonesia has an aging portfolio of dams (figure large dams are located in Java, which hosts nearly 2.3) that has been developed through concentrated 60 percent of the national population, with most periods of construction over time (mainly in the used to support some 750,000 hectares of irrigated 1980s and 1990s, which account for more than agriculture (about 11 percent of the total national half of the current portfolio). Almost half of the irrigated area). This portfolio includes 91 large dams dams owned and operated by the MPWH are older providing the island with the highest absolute water than 25 years; with some built prior to Indonesian storage volume, at around 8.5 billion cubic meters. independence in 1945. The performance and Utilization of large dams in Indonesia Table 2.2 PURPOSE OF DAM NUMBER OF DAMS Irrigation + Water Supply 23 Irrigation + Hydropower 13 Multi-Purpose Irrigation + Hydropower + Water Supply 13 Hydropower + Water Supply 0 Irrigation only 110 Hydropower only 18 Single Purpose Water Supply only 6 Tailing or other 32 Irrigation total 159 Multi + Single Purpose Hydropower total 43 Water Supply total 41 18 Knowledge Note JIT Dam Safety and Disaster Preparedness Distribution of existing and planned (state-owned) large dams in Indonesia FIgure 2.2 Sumatra Kalimantan 20 11 Planned/under 9 5 Planned/under Maluku 1 Existing DAM Existing DAM 2 construction construction 2,850,000 985,000 1,225,713 916,570 Storage (10 m ) Storage (10 m ) Planned/under Storage (10 m ) Storage (10 m ) Existing DAM construction 275 15,000 Storage (10 m ) Storage (10 m ) Sulawesi p Papua 9 9 Existing DAM 506,060 Planned/under construction 1,380,620 1 Planned/under construction Java Storage (10 m ) Storage (10 m ) 200,000 Storage (10 m ) 91 Existing DAM 24 Planned/under Bali East Nusa Tenggara construction 8,600,000 Storage (10 m ) 2,674,370 Storage (10 m ) 5 Existing DAM 3 Planned/under 15 7 27,160 construction West Nusa Existing DAM Planned/under construction Storage (10 m ) 29,600 Storage (10 m ) Tenggara 33,525 Storage (10 m ) 216,590 Storage (10 m ) 62 Existing DAM 4 Planned/under construction 270,150 99,920 Storage (10 m ) Storage (10 m ) Age distribution of the state-owned large dams6 FIgure 2.3 2% > 100 year 13% < 10 year 19% 50 - 100 year 43% 23% 25 - 50 year 10 - 25 year Enhancing Dam Safety and Public Protection through InaSAFE-Based Emergency Action Plan and Contingency Planning 19 structural stability of these dams are challenged and claimed the lives of an estimated 127 people. In by the prolonged accumulation of sediments and 2009, the failure of the 10-meter high Situ Gintung increasing climate uncertainty. Furthermore, limited Dam inundated more than 400 residential dwellings, hydrological records mean that many of these older displaced 170 people, and claimed the lives of an dams may not be designed to accommodate the estimated 100 people. Neither of these two dams predicted change in run-off and increasing rainfall had emergency preparedness plans in place and variability. This increases the risk associated with contrast against the experience of the Way Ela uncontrolled downstream flooding and dam failure. Natural Dam in Maluku that collapsed in 2013. The procedures put in place through the emergency While dam failures are rare events, the action plan provided for the timely and effective consequences can be severe and there have been evacuation that saved almost 5,000 lives when the number of incidents in Indonesia. These include the dam eventually collapsed within a period of 12 failure of the Sempor Coffer Dam in Central Java in hours on July 25, 2013 (Box 1). 1967, an earthen dam that failed due to overtopping The Situ Gintung Dam failed in 2009 due to consecutive days of heavy rains created a flash flood which inundated more than 400 residential dwellings. 20 Knowledge Note JIT Dam Safety and Disaster Preparedness Case I: Situ Gintung Box 1 The 10-meter high Situ Gintung dam was built in On March 27, 2009, the Situ Gintung dam failed. 1933 during the Dutch colonial era. It was located Heavy rains increased the water level of the on a tributary of the Pesanggrahan near the reservoir causing overtopping and erosion of the village of Cirendeu in the Banten province which dam surface. This resulted in a breach around 2 has become part of suburban Jakarta. The dam a.m. in the morning. The uncontrolled released was initially used for the irrigation of rice paddies, of nearly 1 million cubic meters of water created but these paddies were replaced over time by a flash flood which inundated more than 400 residential development and the size of the residential dwellings, displaced 170 people, and reservoir was reduced. A number of residential claimed the lives of about 100 people. There had dwellings located downstream of the dam may been no early warning system in place to provide have been illegal and in violation with Spatial timely warning to avoid the loss of life. One year Laws No.24/1992 and No. 26/2007. prior to the event, there have been reports about the vulnerability of the dam, but no action was taken to reduce the risk of dam failure. Case II: Way Ela On July 13, 2012, a 5.6-magnitude earthquake an emergency action plan. The early warning hit central Maluku and triggered a landslide system consisted of various sensors to measure that blocked the flow of the Way Ela River. This the water level, rainfall intensity, and the level of event resulted in the creation of natural dam debris, and to provide an early alert of potential of 215 meters in height and 300 meters in width dam failure. In the event of dam failure, the with a reservoir capacity of 19.8 million cubic system would automatically activate sirens to meters. Recognizing the potential risk to the 4,777 warn the downstream community. At the same residents of Negeri Lima village which was located time, downstream efforts focused on avoiding 2.5 kilometers downstream of the dam, DGWR the loss of life in the event of dam failure. While carried out a survey in the immediate aftermath the Maluku RBO took responsibility to conduct a of the event to assess the condition of the dam. community awareness campaign related to the The survey results indicated that demolishment emergency action plan, the provincial disaster of the dam would likely trigger additional management authority (BPBD) focused on landslides. In this context, the government the preparation of the evacuation routes and decided to take action to protect the dam and signs and the organization of different types of to conduct preparedness activities with the simulation exercises with the community to test community to maintain public safety in the event the standard operating procedures and logistics. of dam failure. During July 18 and 25, 2013, the efforts to reduce Upstream preparedness efforts of the Maluku the water level of the reservoir failed and the River Basin Organization (RBO) focused primarily condition of the dam became critical. Following on the conservation of the natural dam and the procedures of the emergency action plan, the continuous on-site monitoring. Activities included Head of the Maluku RBO notified the Governor of the installment of water pumps; the construction Maluku, the Regent of Maluku Tengah, and BPBD of a toe drain to collect seepage; and the to start the evacuation. When the natural dam construction of an emergency spillway to provide eventually collapsed within a period of 12 hours controlled release from the dam. In addition, on July 25, 2013, nearly all residents of Negeri the RBO was involved in the monitoring of the Lima had moved to the designated evacuation dam, mostly the water level and the amount zones. In the end, the timely and effective public of seepage discharge; the establishment of an alert had saved almost 5,000 lives. early warning system; and the development of Enhancing Dam Safety and Public Protection through InaSAFE-Based Emergency Action Plan and Contingency Planning 21 Institutional Framework of the MPWH; which is mandated to the DGWR. The MPWH is responsible for formulating and Dam safety management in Indonesia involves a range implementing policies for water resources of different stakeholders, including the following: management; road management; the provision of housing; the development of residential areas; 1. BNPB and Local Disaster Management housing finance; arrangements for buildings, water Authorities (BPBD) supply systems, waste water management systems 2. River Basin Organizations or B(B)WS – Balai and environmental drainage, as well as waste (Besar) Wilayah Sungai; as the implementing management and construction services. MPWH is agency of the DGWR, MPWH also tasked with implementation of human resource 3. Dam Management Units within River Basin development in the area of public works and public Organization housing, in addition to the strategic integration of 4. Dam Safety Units – DSU (Balai Bendungan) public works infrastructure development. 5. Dam Construction Center (Pusat Bendungan) 6. Directorate of Operation and Management Given the unique characteristics of the country’s Guidance - MPWH topography and climate, a system of water 7. Dam Safety Commission – DSC (Komisi resources development and management has been Keamanan Bendungan) established in Indonesia that combines a number of 8. Private and state-owned enterprises that own/ independent river basins into larger administrative manage dams “river territories” or Wilayah Sungai(s). The Water 9. Indonesian National Committee on Large Dams- Law in 2004 introduced a national system of river INACOLD (Komite Nasional Indonesia untuk basin management carried out by public river Bendungan Besar - KNI-BB) basin organizations referred to as either Balai Besar Wilayah Sungai(s) (BBWSs) or Balai Wilayah As the national authority for disaster management, Sungai(s) (BWSs). These balai fill both regulatory BNPB holds a central role in both strategic and and management functions, as well as undertaking operational levels for disaster preparedness. At a construction, operation, and maintenance of river strategic level, the authority issues policies, standards infrastructure and irrigation systems larger than and guidelines on disaster prevention, emergency 3,000 hectares. MPWH Ministerial Regulation No.34/ response, rehabilitation and reconstruction activities; PRT/M/2015 assigns the working area of every B(B) and formulates the national strategic plan on WS (and indirectly distributes the responsibility disaster management (as specified by the Disaster for operation and maintenance of large dams Management Law No. 24/2007). At the operational among the Balais). In practice, dam operation and level the authority is responsible for supporting the maintenance is a combination of effort between operation and development of the regional disaster the Operation and Maintenance Unit (Satuan management authorities (BPBD) in preparedness Kerja Operasi dan Pemeliharaan) and, where they building, disaster relief and rehabilitation work. exist, the Dam Management Unit (Unit Pengelola While BNPB and BPBD are not directly responsible Bendungan) within the Balai. These efforts are for dam safety, both are mandated to assess the supported and guided by other agencies within the nationwide distribution of disaster risks and to DGWR, such as the Directorate of Operation and develop contingency plans for high-risk disasters. In Maintenance in dam management. certain areas and under specific conditions this can include the potential for dam failures. To fulfil its role The DGWR and the B(B)WSs are supported by the in communicating disaster risks to the public, BNPB Dam Construction Center (Pusat Bendungan) in the collects various socio-technical data that characterize construction phase and Directorate of Operation the disaster risk and community vulnerability. and Maintenance in the management phase These are processed and made available to the whose role and responsibilities are outlined in the public through different open-source (and in-house MPWH Ministerial Regulation No. 15/PRT/M/2015 developed) software and websites, including InaSAFE, on Organizational and Work Structure of MPWH. InaRISK and InaWARE. Related to dam safety, these include the following (i) preparation and implementation of guidance norms, Water Resources, including the licensing of water standards, procedures, and criteria for dams, lakes, infrastructure and dam safety, is the responsibility water, and ponds, as well as the physical conservation 22 Knowledge Note JIT Dam Safety and Disaster Preparedness of water resources; (ii) readiness assessment and Under the former Government Regulations, the Dam execution of activities in dams, lakes, water, and Safety Commission was the responsible authorities ponds, as well as the physical conservation of water as regulator for dam safety assurance, including resources; (iii) planning arrangements for dams, lakes, different ministries/agencies who own the dam, water, and ponds, as well as the physical conservation but the prevailing regulations are only binding on of water resources; (iv) human resource development those dams under the MPWH. This notwithstanding, relating to the management of dams, lakes, water, the other agencies also continue to adhere to the and ponds, as well as the physical conservation provisions of the current ministerial regulations. of water resources; and Directorate of Operation The DSC is chaired by the Director General of and Maintenace Guidance for all water resources Water Resources and its membership comprises infastructure including dam. representatives of government and state-owned companies as the owner of the dams, professional A Dam Safety Commission has been in place since associations, and any another government agency 2007 and was re-established under MPWH Ministerial related to dams as appointed by the minister Regulation No. 03/KPTS/M/2016 to assist the ministry in: (i) Providing recommendations relating The Dam Safety Commission is supported by to dam safety to the minister in every phase of dam the Dam Safety Unit – DSU (Balai Bendungan) development such as design, construction, operation, with general task to provide technical and rehabilitation, and dam closure; (ii) evaluating administrative support to the Commission. The the activities of the Dam Safety Units in order to MPWH Ministerial Regulation No. 25/PRT/M/2006 make recommendations to the Minister; and (iii) outlines the roles and responsibilities of the DSU preparing accountability reports for the Minister include: (i) data collection and processing of every and (iv) organizing the dam inspection activity. dam, (ii) assessment of dam construction and Dam failure is a new emerging hazard, therefore innovation and collaboration on dam safety are required Enhancing Dam Safety and Public Protection through InaSAFE-Based Emergency Action Plan and Contingency Planning 23 management (iii) conducting dam inspections, (iv) Regulation No. 27/2015 on Dams and MPWH providing technical advice on dam construction, Ministerial Regulation No. 03/KPTS/M/2016 On Dam (v) dissemination and guidance on dam safety, Safety Commission. Notwithstanding changes in the (vi) drafting regulations, guidelines, technical legal regime, it provides a comprehensive framework instructions on dam safety, (vii) monitoring the for dam safety assurance. implementation of dam construction safety aspects, (viii) maintaining inventories and registration of Under the MPWH Ministerial Regulation No. 27/2015 dams as well as their hazard classification and (ix) Article 77(1) the dam owner is primarily responsible dam archive management. dam management, as well as their corresponding reservoirs, along with dam safety assurance. For The Indonesian National Committee on Large state-owned dams, the MPWH appoints the technical Dams (INACOLD: Komite Nasional Indonesia untuk implementation unit responsible for water resource Bendungan Besar - KNI-BB) is a professional management or a state-owned enterprise to be organization that serves on the Dam Safety the dam manager. The dam manager is assisted in Commission and has an active role in the carrying out the management of the dam, as well as development, operation and maintenance of large the reservoir, by a dam management unit. Under these dams in Indonesia through the continued existence provisions, the B(B)WSs have been designated as the of the organization and activities of its members. Its technical implementation units along with two state involvement as an active member of the International owned river agencies (Perusahaan Umum Jasa Tirta/ Commission on Large Dams (ICOLD) since 1967, as well PJT). Periodic reports are required to be submitted to as its continuous efforts to maintain relationships the relevant agencies by the dam management unit, with other regional and international institutions, including structural and operational information on reflect efforts to maintain an active presence the behavior of the dam and the reservoir conditions; globally. In line with its goal, the KNI-BB aims to readings from instruments and their interpretation, develop and maintain large dams to create a more the results of the inspection, and safety evaluations; effective and efficient means for the development modification or rehabilitation; events related to dam and management of water resources to improve the safety and incident extraordinary; and the condition wealth of the community. This is achieved through: of water reservoir including water allocation. The dam 1) Development and management in the planning, management unit must also have an information implementation, and operation and maintenance system for the dams under their jurisdiction, as well of large dams; 2) Improving the quality of expertise as the reservoirs, that can be accessed by the public. and responsibility of Indonesia’s Technical Experts This should specify: the collection, processing, and on dams in the field of large dams; and 3) Actively provision of data and information on dam as well as participating in the improvement of wealth for the the reservoir; and be regularly updated information of Indonesian people through the development and the dam as well as the reservoir. management of large dams and water resources management. A guideline has been developed by DSU and was issued by the DGWR in 2003 under the Technical Guidelines for Operation, Maintenance and Monitoring of Dam (Keputusan Ditjen SDA 199/ Legal Framework KPTS/D/2003 Pedoman Operasi, Pemeliharaan Indonesia has a well-developed, national legal dan Pengamatan Bendungan). The guidelines framework for dam safety based on three main include dam safety surveillance as an inseparable tenets: (i) structural safety, (ii) surveillance and (iii) and important part of the regular operation and emergency preparedness. This has evolved over maintenance. This includes regular monitoring of four decades and is currently governed through various performance and safety related technical MPWH Ministerial Regulation, No. 27/PRT/M/2015 parameters and periodic safety evaluations by specifically on dams. Following the repeal of the independent third parties. Water Resources Law No.7 of 2004 in 2015, Indonesia reverted back to operating under Water Law No. Emergency preparedness is the third element of 11 of 1974 and MPWH Ministerial Regulation No the dam safety framework in Indonesia. During 72/PRT/1997 on Dam Safety. This regulation was preparation, the downstream communities that would subsequently repealed and replaced by Ministerial be affected by any potential dam failure and the 24 Knowledge Note JIT Dam Safety and Disaster Preparedness provincial and local authorities responsible for early Different from the EAP Guideline, this document does warning, evacuation, and post-flood assistance, are not specifically address a certain type of hazard but required to be consulted. The legislative provisions for provides a universal guidance in building disaster emergency preparedness relating to dam safety are preparedness against natural disasters in general. The intended to ensure that the dam manager is prepared guideline suggests that contingency planning should for the worst conditions in the event of a catastrophic be started by assessing the risk of different disaster failure. The draft emergency action plan should hazards (scoring based on their impact level and contain specific actions relating to dam safety as well occurrence probability) and only high-risk hazards as community rescue actions and environmental safety should be addressed in the contingency plan. Due and should be based on an analysis on the potential to its likelihood and localized impact, dam failure is failure modes of the dam. rarely selected as the basis for a contingency plan. Contingency plan for Way Ela Natural Dam Break is In order to assist the dam owners and managers in the only contingency plan issued by BNPB and BPBD preparing an EAP, DSU issued a guideline document that has been specifically designated for a dam break in 1998; which was formalized under DGWR Decree event. A closer look on both guideline documents are No. 94/KPTS/A/1998. The guideline provides a provided in section 5. framework in identifying hazard / driving factors of dam failure, developing disaster scenarios, assessing the potential impact of a dam failure, designing notification protocols and preparing response Dam Safety Management actions. This document has been used to develop Planning numerous EAP for state-owned dams, including the Jatigede and Gintung dams (the focus of the The Government has implemented a number case studies in this knowledge note). In addition to of programs to improve the overall architecture this, BNPB issued a guideline in 2011 for preparing for dam safety in Indonesia. These are aimed disaster contingency plans. at improving the operational efficiency of the User-interface of the MPWH dam safety database12 FIgure 2.4 Enhancing Dam Safety and Public Protection through InaSAFE-Based Emergency Action Plan and Contingency Planning 25 infrastructure while also building resilience to different web-based disaster management hydro-meteorologic disasters and preparedness in applications, which include the following: the event of a dam failure. The MPWH is developing a web-based database which compiles the results 1. Multi Hazard Early Warning System (MHEWS): for of periodic on-site measurements for key safety forecasting the change of disaster hazard level, parameters for large dams across Indonesia. This with the prediction mainly based on hydro- database enables the MPWH to continuously meteorologic parameters including rainfall monitor dam safety levels and prepare an intensity, air temperature, air pressure, air appropriate response for different hazard levels. humidity, wind speed and direction; accessible at http://mhews.bnpb.go.id/ The MPWH is also piloting a publicly-accessible 2. Indonesia All-hazards Warning and Risk and real-time dam surveillance system (http:// Evaluation (InaWARE) for compiling and monitoringbendungan.com/index.php). processing data required for synchronizing the Surveillance cameras have been installed at nine stakeholders’ perception on disaster risk, and large dams across Java and Sumatra. This system to provide communication and coordination uses a simplified display derived from the larger platform for them; accessible at http://inaware. database; with its presentation focused solely on bnpb.go.id/ water level, rainfall intensity and an aerial image of 3. Indonesia Scenario Assessment for Emergency the dam and its reservoir. (InaSAFE): for simulating natural disaster scenarios across Indonesia and, then, assessing Although BNPB is not specifically mandated to their impact on population and land use; safeguard large dams, they undertake a number accessible at http://inasafe.org/ of activities related to increasing the national 4. Jakarta Scenario Assessment for Emergency water safety and thus improving the resilience (JakSAFE): similar tool to InaSAFE with an to dam failure. The BNPB has collaborated with analysis scope limited to the Province of Jakarta; international and regional agencies in developing accessible at http://jaksafe.bpbd.jakarta.go.id/ Real-time dam surveillance system7 FIgure 2.5 26 Indonesia Scenario Assessment for Emergency [InaSAFE] Enhancing Dam Safety and Public Protection through InaSAFE-Based Emergency Action Plan and Contingency Planning 27 InaSAFE was originally developed in Impact Analysis in InaSAFE Indonesia through a partnership between BNPB, the Australian Government and the InaSAFE combines the data on disaster World Bank GFDRR as a tool for disaster hazard and exposure to assess the managers and communities to support magnitude of impact of the most-common contingency planning. It is a free software natural disasters in Indonesia. InaSAFE that produces realistic natural hazard impact carries out the assessment by overlaying scenarios for better planning, preparedness the spatial data of hazard on exposure and response activities. InaSAFE provides data, in the QGIS software package, and a simple but rigorous way to combine data then examines the intersecting portion. from scientists, local governments and This analysis yields in three main outputs: communities to provide insights into the disaster impact map, disaster impact report potential impacts of future disaster events. and disaster action-checklist (figure 3.1). The software is focused on examining, in detail, the impacts a single hazard on Hazard population and its living environment. The InaSAFE defines ‘hazard’ as any natural or analytical scope of the original version of human caused event or series of events InaSAFE covers four types of natural disasters that may negatively impact the population, including: earthquake, flooding, tsunami and infrastructure or resources in an area. volcano eruption. Hazard data is commonly obtained from past analysis or mapping activities on InaSAFE is available as a plug-in for the disaster hazard conducted by different open-source QGIS software package; and its authorities. Such analysis uses data on usage has been widely socialized by, or in disaster characteristics (mainly related to its close collaboration with, the BNPB. In the scale, frequency, duration based on historical period between its initial development (June records and probabilistic studies) and on the 2011) up to the release of its latest 4.1 version physical properties of the area surrounding (June 2017), there have been 126 trainings the hazard source (mainly topographic profile and workshops organized on InaSAFE across and land use configuration) to estimate the 17 Indonesian provinces, reaching more than areal coverage exposed by a certain type of 3,200 participants. disaster and the spatial distribution of risk level across the potentially-impacted area. This analysis result should be converted, if not already, into a geographical spatial format (i.e. raster image / .tiff or vector image / .shp) which is digestible by InaSAFE. For example, the urban flooding analysis of Jakarta, using hydrological (computational) models, produces a map that presents the extent and depth of inundation due to extreme rainfall and river overflow across Jakarta (figure 3.2). 28 Knowledge Note JIT Dam Safety and Disaster Preparedness Analysis steps of InaSAFE8 FIgure 3.1 Exposure Hazard Flooding, earthquake, Population road network tsunami, volcano eruption land cover building Impact analysis Reports user-defined minimum disaster maps relief needs Actions Example of the urban flood hazard data for Jakarta8 FIgure 3.2 Jakarta Utara Jakarta Pusat Jakarta Barat Jakarta Timur Jakarta Selatan Enhancing Dam Safety and Public Protection through InaSAFE-Based Emergency Action Plan and Contingency Planning 29 Exposure the result to an open-source land use and building InaSAFE defines ‘exposure’ as the susceptibility of an distribution database (OpenStreetMap – OSM). area towards a certain type of disaster; it is defined by feeding GIS-based spatial information on the Impact analysis results distribution of populations, buildings, road networks The InaSAFE outputs include a Disaster impact and land cover. The current availability of this spatial Map, a Disaster Impact report and a Disaster Action data is very limited among public institutions, Checklist. The disaster impact map mainly presents the including within BNPB and MPWH, especially data intersection between the hazard and exposure spatial on land cover and building distribution. When data; based on this map InaSAFE will automatically available, the data is often outdated or not available generate the disaster impact report. This impact in the correct format (either available as .pdf, .jpg report consists of two main sections: (i) impact or printed version). From past experiences, BNPB recapitulation: lists and calculates the number of the recognizes ‘participatory mapping’ as an effective impacted population, road, buildings, public facilities event to convert the available data into the desired and different types of land cover and (ii) disaster format and version. Such an event invites active relief need: estimates the minimum (food, clean water, participation from the public, often represented by sanitary and family kit) supplies for disaster relief students and interest groups, to digitize the available based on the impact report (Figure 3.4). The conversion data into raster or shape file. BNPB has multiple ratio between the ‘impact’ and the ‘disaster relief experiences in organizing this events, such as during need’ is user-defined; with the default conversion ratio the development of JakSAFE and InaRISK, to convert based on the BNPB Regulation No. 2/2012 on General the land cover information (commonly available Guidelines for Disaster Risk Study. Lastly, the action in photographic imagery format /.jpg) into spatial checklist contains questions to start the conversations data (map in shape file format) and, then, upload around better disaster preparedness. Example of an exposure map for Jakarta, containing information on land use, building FIgure 3.3 distribution and road network (available at OpenStreetMap)8 30 Knowledge Note JIT Dam Safety and Disaster Preparedness DEVELOPING DAM SAFETY InaSAFE expansion: Inclusion of dam failure analysis The flooding analysis tool of the InaSAFE 4.1 was CAPABILITIES within InaSAFE designed to assess the impact flooding due to river-overflow and local inundation, characterized The analytical scope of the current version of with relatively low flow velocity, gradual increase InaSAFE (ver. 4.1) covers the most common natural of inundation level and long inundation period. As disasters in Indonesia; including: earthquakes, such, it is not suited to assessing flooding due to volcanic eruptions, tsunamis and flooding. In order a dam failure which is typically characterized by a to expand the scope to include dam safety aspects sudden, uncontrolled discharge with flashflood-like and facilitate the exchange of the required input characteristics. data, two pilot sites were selected by MPWH and BNPB to trial the updates to the InaSAFE-Dam Safety Modifications were incorporated into InaSAFE to version. Data collection was focused on the Jatigede include a dam break assessment function. The and Gintung dams development process was carried out in close consultation with Disaster Management Innovation (DMI), the original developer of InaSAFE, which has not only spawned an expanded version of InaSAFE (figure 3.5) but also assisted BNPB and the MPWH to Example of an impact analysis result (map, report and action list) generated from the FIgure 3.4 simulation of the 2013 flooding in Jakarta Enhancing Dam Safety and Public Protection through InaSAFE-Based Emergency Action Plan and Contingency Planning 31 Background and key technical properties of Gintung and Jatigede Dam 9, 10 Table 3.1 Gintung Dam Jatigede Dam Gintung Dam is located near the village Jatigede Dam is located in the Jatigede of Cirendu, Province of Banten, which Sub-District, District of Sumedang, due to urban sprawl has become Provinde of West Java. Its construction part of Jakarta’s suburban area. This was started in 2008 and completed earthfill dam blocks a tributary of the in 2015. This rockfill dam blocks Pessangrahan River and is mainly used the Cimanuk River with a massive for flood protection, bulk water supply catchment area of 1,462 km2; covering and tourism purpose. After its failure Background the districts of Garut, Sumedang, in March 2009, reconstruction of the Majalengka and Indramayu. The dam is dam commenced in December 2009, mainly used for irrigation, hydropower with the works completed in early 2011 generation, bulk water supply, flood and approved for operation by the protection and tourism. This state- DSC. This state-owned dam is currently owned dam is currently operated and operated and maintained by the BBWS maintained by the BBWS Cimanuk- Ciliwung Cisadane. Cisanggarung. Earthfill with geotextile reinforcement Dam structure Rockfill at the upstream side El. +100 m Crest level El. +265 m Dam’s height (measured from 15 m the deepest foundation) 114 m 180 m Crest length 1,715 m 5m Crest width 12 m 22.92 ha Reservoir footprint 412,200 ha; at water level El +262 m 0,720 million m3; water level at El. Storage capacity FSL -Full 980 million m3; water level at El. +97.50 m supply limit +260 m 0,619 million m3 Effective storage capacity 877 million m3 32.7 km2 Catchment size 1,462 km2 75 l/s Average river discharge 2.5 x 109 m3/year EL +92.70 m Normal Water Level El +260 m EL +87.60 m Low Water Level El +230 m El +98.70 m Flood Water Level El +262 m 124.30 m3/s Probable maximum flood (PMF) 11,000 m3/s 32 Knowledge Note JIT Dam Safety and Disaster Preparedness identify the required input data, to inventory the data assessments using computational hydraulic availability and to identify data-gaps. models conducted by engineering firms contracted by the MPWH. The results of these studies were Existing data collection and exchange delivered to MPWH in .pdf and .doc format and During the process of expanding the capabilities of not compatible with InaSAFE. The maps were InaSAFE and a series of JIT coordination meetings subsequently acquired from the engineering firms with dam operators and disaster managers from in the desired format (figure 3.7). BNPB and MPWH (figure 3.6), the following socio- technical data were identified as crucial to support Population distribution maps and land cover maps the dam break analysis in the updated version of were obtained from the data archives within BNPB InaSAFE and in building disaster preparedness: (figure 3.8). This data was collected during the (i) dam break inundation map; (ii) population development of InaRISK, an accompanying open distribution map; (iii) land cover map; (iv) building website that provides information on the distribution distribution map; (v) road network map. These data of natural disaster risk across Indonesia. Population are required for the selected study case of Jatigede distribution data was issued by the Statistics Indonesia and Gintung Dam in GIS-supported format (i.e. shp (BPS) based on national demography survey in 2014 or tiff format) in order to be compatible with QGIS- (Pendataan Potensi Desa 2014), while the land use based InaSAFE system. map data was published by the National Geospatial Information Agency (BIG) in 2013. The land use map Dam break inundation maps were retrieved from presents the spatial configuration of land designations the Emergency Action Plans (EAP) of the Jatigede on a macro-level and thus does not display the precise Dam (published in 2012) and the Gintung Dam location of buildings, roads and public infrastructures. (published in 2011). These maps were produce The latter data is required to assess the impact of as part of the outputs from the dam break inundation on infrastructures in detail. User interface: Dam break functionality among other disaster analysis options FIgure 3.5 Enhancing Dam Safety and Public Protection through InaSAFE-Based Emergency Action Plan and Contingency Planning 33 Data Acquisition: participatory mapping for the public, was engaged to facilitate a series of Information on the distribution of buildings, road participatory mapping events. These were aimed at networks and public infrastructure is unavailable in converting high-resolution satellite images of areas any governmental agency in Indonesia. While some potentially affected in the event of a failure of the data are available through the OpenStreetMap (OSM) Jatigede and Gintung dams into GIS-based shapefiles platform, and directly downloadable from InaSAFE, this (namely rural areas which are not yet included in the is limited to larger cities across Indonesia. The database existing OSM database). This activity was carried out of OSM has been going through continuous expansion in two steps (figure 3.9). First, the HOT team digitized and benefits from the output of different mapping the imageries into shapefiles which contain the spatial activities aimed at digitizing aerial photos and or maps distribution of buildings, road and public infrastructures. of buildings and public infrastructures (commonly The team then conducted ground-checks to validate available in .jpg format) into a GIS-based format11. the accuracy of the maps produced. This was done by organizing meetings with local leaders (including the The Humanitarian OpenStreetMap Team (HOT), a head of village and community elders) and by visiting non-profit organization committed to continuously the buildings and infrastructures to produce a validated build the OSM database and maintain its accessibility data set and OpenStreetMap (figure 3.10). JIT coordination meeting and discussions FIgure 3.6 Inundation map of Gintung Dam (left) and Jatigede Dam (right) from a Dam break FIgure 3.7 analysis carried out by MPWH9,10 34 Knowledge Note JIT Dam Safety and Disaster Preparedness Land use map and population distribution downstream of the Gintung Dam (top) and FIgure 3.8 Jatigede Dam (bottom) Enhancing Dam Safety and Public Protection through InaSAFE-Based Emergency Action Plan and Contingency Planning 35 Consultations with village heads and community elders as part of the participatory mapping FIgure 3.9 OpenStreetMap database in the surroundings of Gintung Dam FIgure 3.10 before and after the participatory mapping event 36 Knowledge Note JIT Dam Safety and Disaster Preparedness OpenStreetMap database in the surroundings of Jatigede Dam before (left) and after (right) FIgure 3.11 the participatory mapping event Enhancing Dam Safety and Public Protection through InaSAFE-Based Emergency Action Plan and Contingency Planning 37 38 Emergency Action Plan and Contigency Plan Enhancing Dam Safety and Public Protection through InaSAFE-Based Emergency Action Plan and Contingency Planning 39 Disaster preparedness and response in EMERGENCY ACTION PLAN the event of a dam failure are shared responsibilities of the MPWH and BNPB. The MPWH, represented by the B(B)WS The MPWH Regulation No. 27/2015 regulating as the dam manager, is responsible for dam safety management requires dam developing an emergency action plan; owners and managers to prepare an while BPNPB, represented by BPBD as the Emergency Action Plan for use in the event regional disaster manager, is responsible of a dam failure. More than 80 EAPs have for preparing a contingency plan. Although been developed by the B(B)WSs, on behalf there is significant overlap in the content of the MPWH. Sixty-five of these were of both plans, they are developed through financed as part of the Dam Operational different mechanisms and focused on Improvement and Safety Project (DOISP) different aspects of disaster management. using guidelines developed under the This section elaborates and compares both project. These EAPs are based on the Hazard plans to help bridge the plans and move Classification Guidelines prepared under the towards a coordinated InaSAFE-based original Dam Safety Project and approved preparedness planning tool. by the Indonesian Dam Safety Committee in 1999. In preparing the EAP, the dam owner can obtain technical input from the water resource manager in the river basin and input from the potentially affected communities downstream. In the case that one river basin has more than one dam (as cascade); the EAP for each dam should be made into one unified EAP. When a dam is built in a river basin with an existing dam, preparation of the EAP for the new dam must also involve the dam management unit that is already established in addition to involving local technical agencies and local communities. The EAP for the existing dam should be adjusted and then integrated into one unified EAP. If in one river basin multiple dams are constructed simultaneously, the EAPs shall be prepared in a coordinated manner so that all the EAPs can be merged into one unified plan. 40 Knowledge Note JIT Dam Safety and Disaster Preparedness Emergency action plan and communication flowchart of Gintung Dam9 FIgure 4.1 Start Operation and Maintenance Reporting to: - EAP coordinator Regular Emergency Instrument inspection - Head of EAP team situation reading on dam - Head of Dam Monitoring Unit - Balai Bendungan (DSU) collection - Directorate River and Coastal Report Reporting similar to the O&M Normal? emergency level iii Emergency Yes as O&M report, with addition of: inspection activity - Dam Safety Commission (DSC) - Central Dam Monitoring Unit No Intensified and detailed observation No Critical condition? Reporting similar to Emergency emergency level ii Level III, with addition of: Take - Mayor of South Tangerang and prevention Coordinate with Yes and/or Mayor of South Jakarta local government restoration - BPBD of South Tangerang and and relevant parties action South Jakarta Action successful? Yes Reporting similar to Emergency emergency level i No Level II, with addition of: Mayor of South Tangerang and Mayor of South Jakarta instruct their BPBD’s to start evacuation Emergency evacuation procedure and maintain coordination throughout the process No Safety restored? Yes end of emergency Declare the end emergency status Declared by: - For areas surrounding the dam: declaration by the dam owner (MPWH – BBWS) Disaster - For the upstream area: reporting Mayor of South Tangerang and Mayor of South Jakarta Finish Enhancing Dam Safety and Public Protection through InaSAFE-Based Emergency Action Plan and Contingency Planning 41 The MPWH has issued a guideline, formalized under The guideline also introduces multi-stage emergency DGWR Decree No. 94/KPTS/A/1998, to assist dam management; in which an emergency situation is owners in preparing and updating their EAP. The broken-down into three levels according to the guideline recommends that an EAP should include observable severity of the dam damage and/or at a minimum: the magnitude of the hazard or driving factors of dam failure (table 4.1). Response actions and the 1. Elaboration of the emergency situation, potential engagement plan with the relevant stakeholders drivers, impact assessment and options of are developed to suit the different emergency prevention and restoration measures; stages (table 4.2) in order to prevent excessive or 2. Emergency communication procedure and insufficient response actions. Therefore, consistent notification protocol, coordination plan and observations (visual and gauge-aided) on the dam is task division among relevant parties (example required to trail the actual emergency state. presented in figure 4.1); 3. Elaboration on the availability (quantity and The guideline further outlines that during a dam accessibility) of electricity, tools and goods break emergency the decision in commencing required for the dam failure prevention and the evacuation procedure should be taken by the restoration activities; local government whose areas are affected by 4. Inundation map due to dam failure; the dam failure. The dam owner should position 5. Evacuation plan; itself as an active supporting partner, with the 6. Criteria in terminating or ending a dam break evacuation activity itself led by the local government emergency situation. (at least by a district-level government) and the regional disaster management authority. The local In line with MPWH Regulation No. 27/2015, the guideline government and disaster management authority are also requires the EAP to be regularly updated. The also responsible for declaring the end/termination guideline strongly recommends a quick review and of the emergency state when the hazard level is update to be conducted on an annual basis; while a considered to be normalized. The dam owner is comprehensive update should be carried out at least responsbile for actively assisting this process by every five years (or earlier if the socio, economic and continously monitoring and predicting the safety environmental condition is considered to undergone a level around the dam and the affected areas; rapid and significant change). and reporting its finding to the local government. The multiple stages of emergency management under an EAP 9, 10 Table 4.1 INDICATION GENERAL RESPONSE key dam safety parameters (rainfall Emergency level 3 intensity, water level, river discharge, intensification (frequency and scope) of monitoring (siaga 3 or waspada level) activities on the key safety parameters etc.) change towards the threshold level key dam safety parameters further further intensification of the key safety parameters, Emergency level 2 change towards (and nearly reach) the carry out damage restoration activity, notify the (siaga 2 or siaga level) threshold level; structural damage starts local governments and relevant governmental to occur at the dam agencies on the situation technical assessment confirms that dam start the evacuation procedure (if needed); local Emergency level 1 will shortly fail or the failure currently governments and relevant governmental agencies (siaga 1 or awas level) happens carry out tasks as described in the EAP 42 Knowledge Note JIT Dam Safety and Disaster Preparedness Multi-level hazard management in Jatigede Dam10 Table 4.2 HAZARD TYPE INDICATION ACTION • Lowering water level in the reservoir by fully opening th floodgate and irrigation intake according to • Rainfall > 75 mm/hour; with forecast shows an increasing established procedure trend in the following hours • Hourly measurement of water level in the reservoir • Water level in the reservoir exceeds El +260.5 m and (manual or with automatic water level recoder – AWLR) continues to rise • Regular inspection of dam structure, and conducting restoration as needed • Lowering water level in the reservoir by fully opening the floodgate and irrigation intake according to established procedure • Measurement of water level in the reservoir every 15 • Rainfall > 100 mm/hour; with forecast shows an minutes increasing trend in the following hours • Placing earth and sand bags along the dam crest in • Water level in the reservoir reaches El +262.5 m order to heighten the crest level and to concentrate the flow towards the spillway • Installing erotion-proof layer (plastic layer, geotextile, etc.) at the downstream of the dam to protect the erotion-susceptible areas • Rainfall > 150 mm/hour; with forecast shows an increasing trend • Keeping all gates open to the its maximum opening • Q-PMF is achieved Seepage discharge measurement shows significant • Water level in the reservoir reaches El +245.5 m (freeboard increase of 0.5 m) and water is about to overtop the dam crest • Starting the evacuation process • Technical assessment confirms that dam will fail • Intensifying the frequency of seepage measurement • Seepage discharge measurement shows significant (discharge and quality) increase • Lowering water level in the reservoir by fully opening • Seepage flow become higly turbid th floodgate and irrigation intake according to • Piezometer measurement shows significant increase established procedure • Occurance of vortex in the upstream of the dam • Regular inspection of dam structure, and conducting restoration as needed • Intensifying the frequency of seepage measurement • Seepage discharge continously increases (discharge and quality) • The turbidity level of the seepage, and its derbree load, • Lowering water level in the reservoir by fully opening continusly increases the floodgate and irrigation intake according to • The size and number of vortex in the upstream area established procedure continously incrases • Regular inspection of dam structure, and conducting • Vortex starts to occur in the downstream area restoration as needed. • Filling (with gravel) areas where water seeps • Further enlargement of the vortex in the upstream area • Keeping all gates open to the its maximum opening • Seepage flow continue to increase followed byland • Starting the evacuation process subsidence and landslide • Technical assessment confirms that the dam will fail • Conducting emergency inspection according to the • Earthquake magnitude (kh) of 0.05 g < kh < 0.10 g established procedure • Occurance of longitudinal or transversal crack in the dam • Conducting restoration to prevent further damage as body needed • Dam starts to move vertically or horizontally • Conducting weekly visual and gauge-aided inspection for a minimum period of 6 weeks • Earthquake magnitude (kh) > 0.10 g or consecutive • Lowering water level in the reservoir by fully opening earthquakes of 0.05 g < kh < 0.10 g th floodgate and irrigation intake according to • Enlargement of the longitudinal or transversal crack at established procedure the dam body • Fill the leaking parts of the dam (at the downstream • Occurance of landslide and land subsidence part) with bags of gravel-and-sand mixture • Increasing vertical and horizontal movement of the dam • Earthquake magnitude (kh) > 0.10 g • Further enlargement of the of longitudinal/transversal • Keeping all gates open to the its maximum opening crack at the dam body • Starting the evacuation procedure • Landslide and land subsidence continue to grow (in terms of number & size) Enhancing Dam Safety and Public Protection through InaSAFE-Based Emergency Action Plan and Contingency Planning 43 The dam owner is also expected to maintain close communication with the National or Local CONTINGENCY PLAN Meterological Agency (BMKG) to obtain a rainfall intensity forecast. At the end of the emergency, The contingency plan is one of the key instruments the dam owner is responsbile for evaluating the for disaster preparedness and the success of the implementation of the EAP, identifying potential emergency response lies in the preparation and areas for improvement, summarizing learning implementation quality. This was acknowledged lessons and updating the EAP as needed. by the BNPB strategic plan 2015-2019 which approached the reduction of the disaster risk index The guideline requires an approval page to be by developing and then internalizing the principles included in every EAP. The page is to be signed of disaster risk reduction into development by the representative of local governments and planning. This is achieved through developing a relevant governmental agencies (whose tasks and contingency plan at the city or district level. This responsibilities during dam break emergency are approach was proven successful during the Way Ela formulated in the EAP) as a form of agreement in Natural Dam Break (Box 2). As stated in the Disaster taking the necessary action during a dam failure. Management Law No. 24/2007, “contingency The order of actions and notification protocol are plan” means a process of forward planning for summarized in the form of a flowchart in the EAP. unforeseen situations in order to better prevent The EAP Guideline provides a template, although or overcome an emergency or critical situation by this has been considered outdated since it was mutually agreeing on scenarios and objectives, established in 1998, prior to the formation of the determining technical and managerial actions as B(B)WS’, BNPB and BPBD (the current key parties well as response and mobilization of potentialities. of the Indonesian dam safety sector). The MPWH The law also states that disaster preparedness is currently drafting an update of the guideline to and response are the responsibility of the local address the institutional evolution in the sector. government. Disaster drill in Kapaha and Seith villages, February 2013 before the Way Ela Natural FIgure 4.2 Dam collapsed in July 2013 44 Knowledge Note JIT Dam Safety and Disaster Preparedness Disaster Preparedness for Way Ela Natural Dam Break12 Box 2 On the 25th of July, 2013, the Way Ela Natural Dam collapsed at 12:30pm local time, and in less than 3 minutes generated flashflood that swept the surrounding villages. The local government declared a state of emergency, while together with BNPB and relevant ministries and governmental agencies, enacted a contingency plan designed for the dam failure. This failure had been anticipated since the natural formation of the dam in July 2012; and further confirmed by the continuously deteriorating dam condition due to heavy rain events. This provided the basis for the local BPBD to start the dissemination of disaster risks and the implementation of disaster drills (January 29th and February 2nd, 2013); to prepare the local communities and officials for the emergency. During the simulation, BPBD trialed the effectiveness of the prepared evacuation route, signs and the standard operation procedure related to reliable activity and logistics distribution. Simultaneously, the local RBO and MPWH were working throough the provisions of the EAP to focus on the stabilization of the natural dam, continuous on-site monitoring, the installation of various sensors to feed into the early warning system. Throughout this process, BNPB worked closely with the head of the local government as the leading responsible agency in the disaster response; while also involving a wide-range of stakeholders during the emergency preparedness process. As a consequence, during the emergency, the inter-party coordination was fast and efficient, thus, accelerating the emergency response. A flash flood of around 40 million m3 spilled over the Negeri Lima Village, washing 470 houses about 2.5 km downstream towards the Banda Sea. Three people were reported missing during the event; while 5,233 people were successfully evacuated. Enhancing Dam Safety and Public Protection through InaSAFE-Based Emergency Action Plan and Contingency Planning 45 In order to help the Local Disaster Management 3. Responsibility for formulation and distribution Authorities (BPBDs) in preparing contingency plans, among stakeholders; BNPB issued a guideline in 2011.13 The document does 4. Estimation of the required resources for disaster relief; not specifically address a certain type of hazard yet 5. Inventory of the available resources among stakeholder; it provides universal guidance in building disaster 6. Agreement among stakeholders on emergency preparedness against natural disasters. The guideline actions, review plan and disaster drill plan; suggests that contingency planning should be started with a ‘risk assessment’. Here, BPBD enlists and estimates The guideline emphasizes that the contingency the risk of disaster-driving hazards (assessment planning process should prioritize consensus by scoring the occurrence likelihood and potential formation (towards a common perception of magnitude of impact) and then address the high-risks hazard, a jointly-developed disaster scenario hazards in the contingency plan. Steps in developing a and an agreement on the task and responsibility contingency plan are presented in figure 4.2 distribution) rather than solely producing a document. Therefore, the guideline strongly The guideline suggests that a contingency plan recommends the plan to be shaped through series should include at least the following: of consultation activities (hearings, workshops, trainings, etc.) with a wide-range of stakeholders. 1. Identification of relevant stakeholders; This should not only include those who are 2. Relevant data availability among stakeholder; affected by the disaster but also those who have Process for developing a contingency plan13 FIgure 4.2 Review Risk assessment Hazard ranking Scenario development Policy and strategy formulation Simulation / disaster drill Sectorial planning Resources Resources need for Gap analysis availability disaster relief Action planning Formalization Disaster Activation 46 Knowledge Note JIT Dam Safety and Disaster Preparedness the capacity and interest in contributing to the a contingency plan should at least involve: local disaster management. The guideline argues that government, relevant local governmental agencies, an ideal contingency plan should be perceived army, police, private companies, Indonesian by the stakeholders as a contractual document Red Cross (PMI), Indonesian Meteorological, which records and elaborates the mutually-agreed Climatological and Geophysical Agency (BMKG), approach in responding to an emergency. The NGO, universities, media, local leaders and youth guideline recommends that the development of organization. Comparison of an EAP and Contingency Plan9,10,13,14 Table 4.3 EMERGENCY ACTION PLAN CONTINGENCY PLAN Guideline DSU - MPWH. (1998). Guideline for Emergency BNPB. (2011). Guideline for Disaster Contigency Action Planning (Original title: Pedoman Penyiapan Planning (Original title: Panduan Perencanaaan Rencana Tindak Darurat). Kontijensi Menghadapi Bencana) Developer B(B)WS as dam manager; with assistance from BPBD with assistance from BNPB MPWH Preparation Based on elaborated studies (of which to a large Dominated by public consultation and limited (in- methodology extent is conducted by external engineering firm or house) desk study expert) and limited public consultation Consulted parties (1) local governments and inhabitants within the (1) local governments and inhabitants within the during the affected areas, (2) governmental agencies whose affected areas, (2) governmental agencies whose preparation responsibilities are related to dam and disaster responsibilities are related to dam and disaster management management and (3) any private and public parties that have the capacity and interest in disaster management Regular update? Yes, quick update on annual basis and Yes, regular updating is required, without specifically comprehensive update for every 5 years (or earlier prescribing the desired frequency in the case of rapid and significant socio, economic and environmental change) Assessment of Potential hazards are enlisted and, then, The risk-levels of potential hazards are assessed hazards (driving qualitatively assessed based on a scoring system (using a normalized factors of dam index) to study the potential magnitude of impact failure) and its probability of occurrence; and to reveal the highest-risk hazard Disaster scenario Multiple scenario based on different hazards Single scenario, based on the highest-risk hazard identified during the hazard assessment Impact assessment Based on computational hydrological models Assessment is based on expert judgement and to simulate dam break event and estimate the historical records inundation footprint Multi-level Yes, emergency management divided into three- No, emergency management focused on disaster emergency level hazard levels response activity management Socialization of the Simple: focused on related governmental bodies • Elaborated: socialized to, at least, every parties document and inhabitants within the affected areas including consulted in the preparation phase. simulations • Systematic: started a with a table-top exercise or TTX (aimed to build the institutional preparedness), followed by an voluntary evacuation simulation (to build the preparedness of community) and, lastly, a combination of both: on-site disaster drill Enhancing Dam Safety and Public Protection through InaSAFE-Based Emergency Action Plan and Contingency Planning 47 GENERAL COMPARISON contingency plan focuses on the disaster-response and post-disaster activities, namely the evacuation and disaster relief plan. The EAPs and Contingency Plans both aim towards a shared goal of building disaster preparedness. The fact that the focus and strength of these However, these documents are characterized by documents lies on different, yet potentially inter- different approaches and focus (table 4.3). realted and complimentary, aspects of disaster management reveals a future opportunity and According to the guideline, a contingency plan should need for a BNPB-MPWH joint disaster planning. strive to establish itself as an agreement on the Contingency plan is a powerful tool for disaster distribution of disaster response responsibilities response with an extensive stakeholder engagement; among related stakeholders. Stakeholders are defined while EAP is an effective disaster-preparation plan as parties who are potentially affected by a dam based on elaborated technical studies (discussed failure, governmental bodies which are mandated to further in section 5). contribute in disaster management and any group which has the capacity and interest to contribute in this sector. In contrast, the EAP identifies itself more as a disaster impact and response report SUPPORT TO EAP AND than an agreement document. Although every EAP CONTINGENCY PLAN is required to include an approval or agreement page, the signatory of such sheet is limited only PREPARATION to governmental agencies whose administrative areas are affected by the disaster or whose formal Training on the utilization of the expanded InaSAFE responsibility includes disaster management. The A number of trainings have been given to BNPB nature of the EAP and the contingency plan indirectly and BPBD technical staffs and representatives dictate their development methodologies and the of stakeholders in the Indonesian disaster extent of the required public engagement. The management sector on the introduction and development of a contingency plan is dominated by utilization of InaSAFE since the launch of its public consultations as it strives to reach consensus first version in 2011.15 For example, BPBD Maluku among numerous stakeholders on various aspects of Tengah and Kota Ambon have organized a series the disaster response. The development of the EAP of workshops, involving a wide range of regional relies heavily on studies; especially in simulating the stakeholders (including local government, local probable failure modes and dam break events by police and army force, local health department using computational models. Consultation activities and PMI), where the software was introduced are included in this process yet limited only to and a comprehensive training was given (starting potentially affected inhabitants and responsible from collecting input data, developing disaster governmental agencies. scenario and reading the software’s analysis result). The output of these activities was then used as In terms of content, each document focuses on a foundation in drafting a contingency plan for slightly different aspects of disaster management tsunami disaster in the City of Ambon.15 aligned with institutional roles and responsibilities (table 4.4). The EAP, with its multi-stages emergency Continuing in this line of work, a training session was management approach, extensively elaborates the organized on December 29th, 2017 . This was aimed required pre-disaster activities and arrangements; at introducing InaSAFE (both current and expanded mainly aimed to quantitatively-estimate the version) and its operation mechanism. After the potential impact of a dam failure and the measures introduction on how InaSAFE can be used to manage required to prevent and limit its impact. The plan the risk of dam failures in disaster management emphasizes that B(B)WS, as the dam owner/manager by BNPB’s Director of Preparedness, the InaSAFE and composer of the EAP, should position itself as a developer from Geo Enviro Omega (GEO) and HOT team supporting-partner to the leading role of the local provided the following: introduction to QGIS; steps government and disaster management authority of analysis in the expanded version of InaSAFE and in those activities. In contrast, the content of the extracting the analysis result using Gintung Dam case 48 Knowledge Note JIT Dam Safety and Disaster Preparedness Table of Contents (ToC) suggested for EAP and contingency plans Table 4.4 EMERGENCY ACTION PLAN CONTINGENCY PLAN ToC template proposed by DGWR Decree No. 94/KPTS/A/1998 on ToC template proposed by: BNPB. (2011). Guideline for Disaster Guideline for Emergency Action Planning Contigency Planning Chapter I: Introduction Chapter I: General description Sub-chapter: objective, scope, list of supporting documents, Sub-chapter: N/A threshold value monitoring, revision, approval page, report distribution list Content: introduction to potential hazard, and its causes, Content: should at least include the physical and hydrological emergency scenario, as well as introduction to prevention and condition of the area; governmental arrangement and type of restoration principles potential disasters in the area Chapter 2: Introduction to emergency situation Chapter 2: Risk Assessment Sub-chapter: emergency scenario Content: physical and hydrological properties of dam, reservoir Content: enlist type of potential hazard (drivers of disasters) and and its immediate surroundings, potential drivers of dam failure assess its risk based on the potential magnitude of impact and (without risk assessment) occurrence probability. Chapter 3: Responsibility, warning and communication Chapter 3: Disaster Scenario Sub-chapter: responsibility division, organizational framework, Sub-chapter: N/A warning system Content: inventory of required activities during emergency (and Content: disaster scenario setting (location, timing, duration and its division among relevant parties), notification protocol and estimated magnitude), impact coverage map of the disaster and order of actions (different protocol and order per hazard level) impact assessment on five main aspects (population, economy, environment, infrastructure and government) Chapter 4: Electricity, tools and goods Chapter 4: Policy and strategy Elaborates the availability and access to electricity, tools and Content: formulation of the general guideline for sectors to act goods which are needed during dam failure prevention and during emergency condition restoration. It should be clear on: type of available goods, location and quantity Chapter 5: Inundation map Chapter 5: Sectoral Planning Sub-chapter: N/A Sub-chapter: health, transport, logistics, search and rescue (SAR) Content: inundation map, list of affected administrative areas Content: identification / enlisting required activities during (areas-dam distance, flood duration at each area), water level emergency condition, distribution / assignment of the activities in the reservoir and river (during normal and emergency among relevant parties and recapitulation of required goods by condition), maximum discharge due to dam failure. each sector Chapter 6: Evacuation Chapter 6: Monitoring and further action Sub-chapter: N/A Sub-chapter: N/A Content: general guideline for the evacuation procedure in Content: actions required to prepare for emergency situation accordance with the applied multi-level warning system. (table-top exercise, simulation, drill) Chapter 7: Termination of emergency condition Chapter 7: Closing Content: general procedure for terminating the emergency Content nor specified condition; and the roles of dam owner in this process Enhancing Dam Safety and Public Protection through InaSAFE-Based Emergency Action Plan and Contingency Planning 49 study; and building data exposure using OSM platform. and Gintung Dam, these products (especially The training was represented by B(B)WS from 13 flooding map, details of affected population and provinces, Water Resources Research and Development infrastructure as presented in figure 4.4 and 4.5) Agency, and Dam Safety Units (Figure 4.3). should not be used for contingency planning purpose; due to the outdated and imprecise nature Workshop on InaSAFE-based EAP and Contingency of the some of the input data (specifically: the Plan Preparation inundation maps which were produced in 2011, The preceding activity was directly followed by population data published by BPS in 2014 and the a workshop session on InaSAFE-based EAP and macro-level land use data issued by BIG in 2013). Contingency Planning; with a focus on the two case Notwithstanding the limitations, the outputs provide studies from Jatigede and Gintung Dam. an illustrative example of how InaSAFE can be used to inform the preparation and implementation of an Although the outputs of this activity are theoretically EAP and Contingency Planning in the event of a dam usable for contingency planning in Jatigede failur, along with the required response activities. Training on the utilization of the expanded InaSAFE FIgure 4.3 50 Knowledge Note JIT Dam Safety and Disaster Preparedness Results of the InaSAFE analysis for the Gintung Dam: FIgure 4.4 Disaster map, impact report and disaster action-checklist Enhancing Dam Safety and Public Protection through InaSAFE-Based Emergency Action Plan and Contingency Planning 51 Results of the InaSAFE analysis for the Jatigede Dam: FIgure 4.5 Disaster map, impact report and disaster action-checklist Inclusive contingency planning is an effective way to strengthen collaboration and coordination among stakeholders 52 WAY FORWARD: InaSAFE-Based Emergency Action and Contigency Planning? Enhancing Dam Safety and Public Protection through InaSAFE-Based Emergency Action Plan and Contingency Planning 53 InaSAFE is a powerful tool which has the findings and lesson learned into a the potential to become central to the framework for future collaboration between preparation of EAP and contingency BNPB-MPWH in the preparation of EAPs plans. InaSAFE enables dam managers and contingency planning. The framework and disaster risk specialists to develop proposes a role sharing agreement scenarios associated with specific events, between BNPB-MPWH and specific actions assess the impact of the scenarios and towards an InaSAFE-based EAP and estimate the disaster relief needs. These contingency planning tool that can fully are the main inputs in composing an EAP embed the plans within the community and contingency plan. The outputs from and relevant institutions (figure 5.1). InaSAFE include the impact of a potential dam failure in tabular format (enlisting To realize successful adoption of the the number of affected population framework, it is essential to acknowledge or infrastructure) as well as spatial the presence of challenges in each of its information (disaster coverage map). sections. The challenges identified through These can be used to draft an evacuation this process were compiled and used as a plan identifying the extent of the disaster, foundation to formulate the success factors locating unaffected areas suitable for for the adoption and implementation of evacuation routes and gathering points.16 the framework. Failure to include these key elements will not only undermine The MPWH and BNPB have acknowledged the utility of the EAP and contingency the potential role that InaSAFE could play planning practice but have the potential in building disaster preparedness against a to increase the impact of a dam failure on potential dam failure.17 This section reflects the downstream communities and assests on the experience with the two pilot due to improper planning and coordination processes and is dedicated to synthesizing mechanisms being in available. 54 Knowledge Note JIT Dam Safety and Disaster Preparedness Roadmap towards an InaSAFE-based Emergency Action and Contingency Planning FIgure 5.1 Ministerial Socializing the contigency Regulation plan to relevant actors No. 27 year InaSAFE thorugh a systemactic 2015 Analysis process: table-top exercise/role-play, Dam Break BNPB Simulation EAP- (voluntary) community evacuation exercise and, Data MPWH Contigency then, on-site disaster dirll. Collection planning BNPB-MPWH BNPB-MPWH collection of Feeding the output Develop technical, socio of dam break a join disaster and economic Dam break simulation (step 2) response plan data (required for step 1 and 2) in simulation based on computational and the relevant supporting data (from initial BNPB- MPWH discussion, Plan a GIS format; i.e. (hydraulic) model to (gathered in step the document Socialization EAP. popoulation, land produce inundation 1) into InaSAFE to will be named: BNPB-MPWH Contingency use, infrastructure; footprint map and asess the impact RTD-Renkon) that Planning hydrometeorolgy flooding properties of dam break event will synergize the Promulgation and topography (inundation depth, and to estimate the identified strengths MPWH characteristics, etc. duration and timing) disaster relief needs. of both plans. INTER-INSTITUTIONAL land use map), Statistics Indonesia (population distribution), local government and regional COOPERATION development planning agency / Bappeda (detailed land use map). Inter-institutional cooperation is essential for effective disaster risk management and dam safety assurance. Extensive sociotechnical data are required to inform a dam break analysis and preparation of effective COMPATIBILITY OF BNPB- planning and response mechanisms. These data are MPWH DATABASE often hosted by a wide range of different stakeholders. In practice, most of these data are not easily accessible One of the main challenges encountered during by those external to the host organization (even by the pilots was the difference in data management other governmental bodies); and would commonly systems between BNPB and MPWH. BNPB, as the host require at least an official request letter for acquiring of InaSAFE and other geo-information software for them. An existing Memorandum of Agreement (MoU) disaster management, adopts a GIS-based database. on Disaster Management between BNPB-MPWH In contrast, MPWH gathers and manages their facilitated the exchange of information for the two technical data in office suites or portable document pilot projects. The presence of such agreement has format (e.g. .doc, .xls, .pdf, etc.). Only a few of the been recognized to be valuable in exchanging the EAPs (and their inundation maps) within MPWH are needed data and, therefore, accelerating the process available in GIS-format while the remaining only of analysis and preparation. It is considered essential exist in .pdf or .doc format. To be able to use these for BNPB and MPWH to actively expand and reinforce data (especially the inundation maps) in InaSAFE, a their collaboration with other relevant data-hosting digitization/conversion activity is required; an often agencies, especially: Geospatial Information Agency time consuming activity that can produce imprecise (administrative boundary), LAPAN (satellite imagery), replication. Realizing the obstacles attached to Ministry of Environment and Forestry (macro-level unmatched database system, the adoption of (at least Enhancing Dam Safety and Public Protection through InaSAFE-Based Emergency Action Plan and Contingency Planning 55 partially) GIS-based database within MPWH for dam involved in the response activity and the potentially safety data will improve and accelerate the InaSAFE affected communities. Risk communication with the analysis process. A first step towards this shift would involved governmental and private agencies should be collecting GIS-based inundation maps from be initiated by the dam manager in the early phase external engineering firms or experts who conduct development of the EAP and contingency planning. the (past, current and future) dam break analysis. This is important to create a common perception on The MPWH should also consider using remote data the risk, the required response actions and to explore acquisition techniques, such as remote sensing, aerial the roles and responsibilities of each party. Past photography, drones, etc. Longer term, BNPB and the experience emphasizes the importance of gradual and MPWH should consider establishing a shared dam casual-fashioned communication with communities safety database integrated with the real-time dam during preparation and scenario planning to prevent safety surveillance system (section 2.5). the creation of fear within the community. This requires a communication strategy which commences by approaching community leaders and elders, and then utilize their voice and influence to convey the PARTICIPATORY MAPPING risk to the public and reassure around the facilitated process. This approach is also known to be effective in Participatory mapping is a powerful tool to enhance enhancing public participation during the (voluntary) data acquisition and accuracy, empower community community evacuation exercise. participation and overcome limited in-house human resources. As such, it has become one of the main inputs for successful planning and preparedness in the event of a natural disaster. Spatial data on BNPB-MPWH JOINT WORKING the detailed distribution of buildings and public GROUP infrastructures (in GIS-format) is currently limited in any government ministry. OSM is currently the Throughout the pilots, it was acknowledged that the sole platform that provides this data. Although the existence of a joint working group between BNPB OSM platform has been going through a continuous and MPWH was invaluable to realize and smoothen expansion process, the development of the OSM the process, particularly in the data collection and database is uncoordinated and opportunistic and organization of participatory mapping. The presence of focused on urban areas. The development of the the working group has accelerated the administrative OSM platform relies solely on participatory mappings processes within BNPB and MPWH, lead to consensus conducted by any party for a variety of different on their views around disaster preparedness, purposes, from regional planning to infrastructure delegated the required organizational tasks and, engineering. Participatory mapping provides a unique eventually, resulted in the realization of a greater opportunity for BNPB and MPWH to actively engage engagement during the pilots. Realizing a sustainable local communities, their leaders, universities, interest coordination mechanism for dam safety and groups and participatory mapping facilitators in the emergency preparedness between BNPB and MPWH development, and evaluating of EAPs, contingency through the presence of such a specifically-designated plans and disaster response mechanisms. joint working group will be essential. The pilots have successfully established a cross-agency working team, chaired by high-level officials (Grade Echelon 1 officials from BNPB and MPWH) and operated by technical DISASTER RISK staff from both agencies. This working group can be COMMUNICATION further shaped and extended to not only focused on InaSAFE-based disaster planning but on other aspects The dissemination of disaster risk information is of disaster preparedness and planning. The working essential to ensuring successful execution of an EAP group should continue to meet on a regular basis to and a contingency plan in the event of a dam failure. inform the planning and construction of new dams, The roles and responsibilities of the dam operator / rehabilitation or modernization of existing dams, owner is clearly defined and communication should updating of existing EAPs or contingency plans and be focused on at least two parties: the agencies during dam safety emergency situation. “Community is the most important resource in preparedness and response” 58 Knowledge Note JIT Dam Safety and Disaster Preparedness REFERENCES 1 The World Bank. (2015). More and Better Spending: OpenStreetMap. https://wiki.openstreetmap.org/ 11 Connecting People to Improved Water Supply and wiki/Main_Page Sanitation in Indonesia – Public Expenditure Review. 12 Kayadoe F.J., Nugroho S.P. and Triutomo S. (2016). 2 Bappenas (National Development Planning Agency). Community Resilience Against Way Ela Flashflood (2015). Mid-Term Development Plan (Original Title: – Vilage of Negeri Lima, Central Maluku District Rencana Pembangunan Jangka Menengah Nasional (Original title: Ketangguhan Masyarakat Dalam 2015-2019) Menghadapi Banjir Bandang Way Ela di Desa Negeri Lima Kabupaten Maluku Tengah). Dialogue Journal 3 MPWH. (2015). Strategic Plan Ministry of Public of Disaster Management Vol.7, accessed at: http:// Works and Housing (Original Title: Rencana perpustakaan.bnpb.go.id/repository/volume7_ Strategis Kementerian Pekerjaan Umum dan no1_2016.pdf on November 12, 2017. Perumahan Rakyat) BNPB. (2011). Guideline for Disaster Contigency 13 4 BNPB. (2016a). Indonesian Disaster Risk (Original Planning (Original title: Panduan Perencanaaan title: Risiko Bencana Indonesia) and Data Informasi Kontijensi Menghadapi Bencana) Bencana Indonesia (DIBI), accessed at http://dibi. bnpb.go.id/ on December 20, 2017. 14 BPBD Maluku Tengah. (2012). Contingency Plan Flashflood Way Ela (Original title: Buku Rencana 5 BNPB. (2016b). The Decline of Indonesian Disaster Kontijensi Penanggulangan Bencana Banjir Bandang Risk (Original title: Penurunan Indeks Risiko Bencana Way Ela) di Indonesia 2016). [Presentation slides] 15 InaSAFE. (2016). InaSAFE for Contingency Planning 6 MPWH. (2017). Dam Safety and Emergency Action Training. Accessed at: http://inasafe.org/inasafe-for- Plan (Original title: Keamanan Bendungan dan contingency-planning-training/ on November 2, 2017. Rencana Tindak Darurat). [Presentation slides] 16 InaSAFE. (2014). Modul 2: QGIS and InaSAFE in 7 MPWH. (2017). Dam Safety Monitoring (Original Contigency Planning (Original title: Modul 2: QGIS title: Monitoring Keamanan Bendungan). Accessed dan InaSAFE dalam Rencana Kontinjensi). 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Enhancing Dam Safety and Public Protection through InaSAFE-Based Emergency Action Plan and Contingency Planning 59 MPWH Ministerial Regulation No. 27/PRT/M/2015 MPWH Ministerial Regulation No 72/PRT/1997 on on Dams (Peraturan Menteri Pekerjaan Umum dan Dam Safety (Peraturan Menteri Pekerjaan Umum dan Perumahan Rakyat No. 27/PRT/M/2015 tentang Perumahan Rakyat No. 72/PRT/1997 tentang Keamanan Bendungan) Bendungan) Law No. 24/1992 on Spatial Planning (Undang MPWH Ministerial Regulation No. 03/KPTS/M/2016 On Dam Undang No. 24 Tahun 1992 tentang Penataan Ruang) Safety Commission (Keputusan Menteri Pekerjaan Umum dan Perumahan Rakyat No. 03/KPTS/M/2016 tentang Law No. 26/2007 on Spatial Planning (Undang- Komisi Keamanan Bendungan) Undang No. 26 Tahun 2007 tentang Penataan Ruang) DGWR Directorate-General Decree No. 199/KPTS/D/2003 Law No. 7/2004 on Water Resources (Undang-undang on Technical Guidelines for Operation, Maintenance No. 7 Tahun 2004 tentang Sumberdaya Air) and Monitoring of Dam (Keputusan Ditjen SDA No. 199/ KPTS/D/2003 Pedoman Operasi, Pemeliharaan dan MPWH Ministerial Regulation No. 15/PRT/M/2015 Pengamatan Bendungan) on Organizational and Work Structure of MPWH (Peraturan Menteri Pekerjaan Umum dan Perumahan BNPB Regulation No. 2/2012 on General Guidelines for Rakyat No. 27/PRT/M/2015 tentang Organisasi dan Disaster Risk Study (Peraturan Kepala BNPB No 2 Tahun Tata Kerja Kementerian Pekerjaan Umum dan 2012 tentang Pedoman Umum Pengkajian Risiko Bencana) Perumahan Rakyat) DGWR Directorate-General Decree No. 94/KPTS/A/1998 on MPWH Ministerial Regulation No. 25 / PRT / M / Guideline for Emergency Action Planning (Keputusan Ditjen 2006 Organizational and Work Structure of Dam SDA No. 94/KPTS/A/1998 Tentang Pedoman Penyiapan Safety Unit (Peraturan Menteri Pekerjaan Umum Rencana Tindak Darurat) dan Perumahan Rakyat No. 27/PRT/M/2015 tentang Organisasi dan Tata Kerja Balai Bendungan) Law No. 11/1974 on Water (Undang-undang No 11 Tahun 1974 tentang Pengairan) The Global Facility for Disaster Reduction and www.gfdrr.org Recovery (GFDRR) is a global partnership that helps developing countries better understand and reduce their vulnerabilities to natural hazards and adapt to climate change. Working with over 400 local, national, regional, and international partners, GFDRR provides grant financing, technical assistance, training and knowledge sharing activities to mainstream disaster and climate risk management in policies and strategies. Managed by the World Bank, GFDRR is supported by 34 countries and 9 international organizations.