Institutional capacity building for local disaster prevention board of West Pasaman Regency

This study aimed at analysing institutional capacity building of BPBD of West Pasaman in local-based disaster prevention and management. The study applied a qualitative methodology with phenomenological approach. The disaster prevention and management institutional capacity building was performed by a coordination. The coordination did not restrict itself with formal institutions, but also local community institutions and organisations, such as Kogami, HSNI, and three local community elements (tungku tigo sajarangan). This study found that socialisation in disaster mitigation and prevention was still inadequate because of lacking local community involvement. Furthermore, it also found lacking clarity of authority and responsiblity between central, provincial, and regency governments. West Pasaman Regency needed support from the provincial government in terms of post-disaster equipments. This study had a theoretical contribution of extending the knowledge in public management and practical contribution of helping the local government implement the institutional capacity building of BPBD in the disaster prevention and management


Introduction
West Sumatera Province has been applying 24-hour disaster preparedness for years due to the fact that it has a high disaster prone.Natural disasters may occur anytime, anywhere [1].A similar fact is also gathered from the Center for Volcanology and Geological Disaster Mitigation (PVMBG), that West Sumatera has 144 districts with a moderate-to-high risk of natural disaster in terms of mass movement, which is responsible for causing landslide and flood.Such disaster prone can be found in sixteen regencies/municipalities [2,3,4].
West Pasaman is one of regencies under the administrative territory of West Sumatera, which is highly prone to disasters.The Local Disaster Prevention Board (BPBD) of West Pasaman Regency reports detailed the geographical stature of the regency as the reason for being exposed by frequent disasters.The topographical profile of West Pasaman, being either hilly, mountaneous, or coastal, contribute to the threats of vary natural disasters, from landslide, to flood, to abrasion, to tsunami.Such condition requires awareness and preparedness around the clock [1].Several districts, including Talamau, Gunung Tuleh, Sungai Aua, Ranah Batahan, and Parit Kota Balingka, are siuated in mountaneous, landslide prone area.The regency also has rivers that potentially cause flood, i.e.Batang Pasaman and Batang Sikabau, which are all drought at Sasak Estuary [1].High level of preparedness from the local government of West Pasaman are crucial to deal with the highly potential disaster threats [5].
Analysis of institution and institutional capacity building is necessary to help the disaster institutions perform its duties effectively and efficiently.Community involvement, especially those who received the immediate impact of the disaster, is crucial.In the context of West Pasaman, localborne communities, which play important roles in dealing with the disasters, e.g.Komunitas Siaga Tsunami (Kogami), HSNI, and three elements of local leadership (tungku tigo sajarangan) are considered necessary to take part into disaster prevention and management [6,7,8].

Method
This research performed a qualitative methology with a phenomenological approach.Phenomenology influences attitudes and viewpoint, becoming the only way to know other's experience by asking them questions through interviews.The phenomenon of the institutional capacity building of BPBD of West Pasaman can be studied by the phenomenological approach.This method aims at revealing reality from the viewpoint of the individuals who have direct experience.It relates to the natures of human experience and the meaning adjacent to it.

Natural Disaster
Disaster is an extreme functional disturbance of a particular community, which causes social, material, and environmental lossess, extending and surpassing the ability of the affected community and their own resources.Earthquakes, floods, typhoons, and tsunamis are considered disasters once they have caused serious problems and affected human life, living, and property or belongings.A harmful event (e.g., earthquake, flood, typhoon, or tsunami) becomes a disaster when it causes injury, death, and loss of properties or living, as well as damage of infrastructures [9,10].
Law 24/2007 defines disaster as "an event or a series of events that threaten and disturb life and living of community due to either natural or human factors as such that these events cause death, environmental damage, loss of properties, and psychological disorders" [11].
Natural disaster is a consequence of a combination between earth activities, either physical (e.g.volcanic erruption, earthquake, landslide) or human activities.Human powerlessness due to lacking preparedness and emergency management is responsible for causing financial and structural losses, not to mention life.Natural symptoms are those very natural that occur overtime as long as the Earth stands; however they may become the disasters when causing deaths and physical losses [12].A natural disaster occurs quickly and spontaneously with huge impacts on the environment and socioeconomic systems [13].The disaster impact is enormous over time, as the United Nations reports that the annual toll of the disaster victims have reached 200 people.Such figure is seven times bigger than war victims.In just a few years different natural disasters, i.e. earthquake, tsunami, typhoon, and flood, have caused severe damages across the globe [14].
In addition to being natural-borne, natural disasters are, in part, also caused by human, such as technological failure, which triggers people, community, individual, and environmental responses to rendering a far-reaching enthusiasm, in the forms of protests, petitions, or causes, that oppose to the further application of the tehnology [15].

Institutional capacity building
Major focuses of capacity building are investing in people, investing in organisation, and investing in network.Investing in people deals with th notion that human as an actor must be capable of doing something beneficial to life and future [15].Investing in organisation goes with organisational consideration as a tool or a medium used by human in attaining mutual objective in efficient and effective manners.Capacity building comprises three dimensions, i.e. human resource development, organisational empowerment, and institutional reform.The focus of institutional reform and macrostructure system deals with the following types of activities: economic and political rule of the game, change in policy and regulation, and constitutional reform [16].Buchari et al. (2017), in their research on institutional capacity building in Tarokong Kaler District, Garut Regency, West Java Province, conclude that disaster resilient village capacity building is defined as efforts to improve capabilities in dealing with disaster management from pre-response to post-disaster phases [17].Caymaz et al. (2013) in their research in Turkey concerning problems of effective and efficient public institution management on disasters find that in the National Earthquake Strategy and Action Plan 2012-2023, the focus on earthquake did not apply effectively and efficiently in practice [18].Cheema et al. (2015) promote the importance of a historial case study approach to disaster management and mitigation.Their empirical research presents approaches to natural disasters in Pakistan.It gives priority to the serious awareness of planning and management during the disasters in developing countries at different political scales, from local to national, in particular when resources are limited [19].

Previous researches
Hagelsteen and Burke (2016) contend that capacity builing in disaster risk reduction (DRR) becomes one of leading methods towards the loss reduction due to the disaster.The research reminds us to challenges faced by organisations to materialise the guidance for capacity building to be put in pratice.Among the challenges is limited resource in project management [20].
A research that discusses climate change phenomenon in urban area in Asia with a case study of Hat Yai city, Thailand, reveals key factors towards successful pubic policy in disaster management.It finds three important factors, i.e. balance between self-and individual interests, private sector participation, and effective implementation of policies in response to obstacles [21].Siriwardana et al. (2017) in their research on efficiency and effectiveness of disaster management frameworks in Sri Lanka find that the SLNDMP, the national institution responsible for disaster issues, is not capable of implementing the Post Disaster Assessment effectively; PDA is an important feature in this country to reduce the disaster risk.The SLNDMP is also unable to produce an extensive and inclusive national disaster profile, so that many of the disaster prone areas are overlooked, therefore, causing more losses [22].Khairul et al. (2016) in their research on institutional empowerment of disaster management in Padang, West Sumatera conclude that the BPBD of Padang Municipality as an independent leading sector must have a stronger authority by being posited under immediate order of the local head, i.e.Mayor of Padang.The Board is also supposed to cooperate and coordinate better with Police Department, the Army, and disaster experts [6].

Natural Disasters in West Pasaman Regency
Flood that occurred during October 2018 in West Pasaman Regency took the tolls of eleven different districts.A report from BPBD of West Pasaman Regency explained that the flood occurred in Wonisari Kinali, Simpang Tiga, Jambak Luhak Nan Duo, Kapa, Sasak, Batang Saman, Pasaman, Gunung Tuleh, Sungai Aur, Koto Sawah Ujung Gading, Ranah Batahan, Air Bangis, and Parit.Furthermore, the flood was also followed by another disaster, landslide.[23] Flood disaster caused damages of two important bridges located in two districts, i.e.Pasaman and Ranah Batahan, isolating as many as 875 households [24].
Flood did not only take human victim, but also natural resources.In some districts, i.e.Sasak, Pasaman Barat, Ranah Batahan, Lembah Malintang, and Sungai Beremas, the flood caused rice field and plantation damage.Accordingly, the local farmers sufferred from harvest loss [25].
Flood disaster in West Pasaman did not only occur in the current year.The previous years showed that River Batang Batahan became the major cause of flood in local settlements of Kampung Baru Nagari Batahan [26].In the past five years, West Pasaman has been suffering from vary disasters, i.e. earthquake, flood, landslide, and abrasion.Table 1 illustrates the natural disasters that took place in the regency from 2013 in many districts.has a function of formulating and making policies on disaster prevention and management, as well as refugee coordination, by taking timely and ontarget actions, effectively and efficiently.In order to perform all activities related to the disaster prevention and management BPBD of West Pasaman already has a Standard Operation Procedure (SOP) in reference to the SOP issued by BPBD of West Sumatera Province.The Board, in addition, is also responsible for coordinating activities dealing with the disaster management and prevention in planned, integrated, and inclusive manners.For a while, BPBD of West Pasaman has already equipped itself with Standard Operational Procedure (SOP) in dealing with the disasters.It directly involves on the disaster site and coordinates with BPBDs from other regencies/municipalities, Indonesia Red Cross (PMI), Quick Reaction Team, and Search and Rescue (SAR) Team.However, the mechanism is under the coordination of BPBD of West Pasaman [1].
The threat of landslide became an importance reminder for BPBD of West Pasaman to inform to the public at large during the 2018 Idul Fitri holidays.The Board gave a warning to commuters to stay awake of the landslide potential danger during their road trip.The Regency Government of West Pasaman, through its Public Works and Spatial Management Office, had been preparing heavy duties and equipments needed for dealing with the landslide.A 24-hour preparedness was applied supported by any necessary equipments and aides, such as operational vehicles, boats, and diving equipments [1] [28].
BPBD of West Pasaman has issued a 2016-2021 Strategic Plan to give guidance for planning and implementation of programs and activities, policy direction and strategies for empowerment and implementation of disaster prevention in the regency.This Strategic Plan includes objective of accountability system of the BPBD as one of key institutions in Pasaman Regency that deal with disaster towards efficient and effective management of the existing resources.

Post-disaster efforts.
Flood and landslide in November 2014 were responded by BPBD of West Pasaman by constructing the data obtained directly from the location.The results were then endorsed to the Provincial Government of West Sumatera.The Board also expected helps from externalities to relieve the post-disaster impacts [26].
During the 2016 landslide BPBD of West Pasaman, in collaboration with Public Work Office and Sector Police (Polsek) of Talamau District, made a joint effort to resolve traffic jam.The landslide disconnected the transportation from West Pasaman Regency to Pasaman Regency.When the landslide occurred, no adequate equipments were available to clean the debris.The Board, the Police, and PMI coordinated and organised the situation.Talamau is a highly disaster prone regency [4].
The 2017 flood was responded by BPBD of West Pasaman by a coordination with River Area Center (BWS) Sumatera II in River Batahan Normalisation to prevent the flood.However, in practice, the coordination was hampered, therefore, allowing the flood to occur [4].

Institutional capacity building of BPBD of West Pasaman
The pre-, during, and post-disaster phases were marked by the Board's limited coordination with official governmental institutions.Community institutions and groups, such as Kogami, HSNI, tungku tigo sajarangan, were not given opportunities to take part.
Should the focus of institutional capacity building be investing in organisation, in which the organisation becomes a medium towards mutual objective, the practical finding during the research on the disaster prone in West Pasaman offerred a phenomenon.Historically, the regency had been "familiar" with natural disasters, but the BPBD still found classical difficulties in performing its duties to deal with the disasters.No further efforts were taken towards investing in organisation by developing the institutional capacity in preventing exceeded losses due to the disasters.
The ongoing coordination was ineffective.It proved a possibility of overlapping duties.The disaster preparedness, as shown in the historically lanslide prone areas, proved the unprepared manner of the institution.
Furthermore, no mutual cooperation was found in terms of active participation between authorities and local community groups, such as NGOs, social groups, and traditional entities (e.g. the Nagari).The disaster management by local community using inadequate equipments and knowledge proved that the institution did not capable of transmitting knowledge and preparedness to the affected community.
Inadequate institutional capacity building did not only cost human losses, as what happend in flood disasters, but also environmental problems.The negative impact of the natural disasters on the environment was the loss of ecological equilibrium, threatening sustainable environment.The local institutions' capacity in taking the "correct" and timely actions during the disasters will decrease dependency on other externalities in terms of post-disaster aids, financially or materially.
In the capacity building the coordination must be performed with institutions that concern with the disaster issues, such as Agency of Meteorology, Climatology, and Geophysics (Badan Meteorologi, Klimatologi, dan Geofisika, or BMKG) and those dealing with volcanology.The purpose of such coordination is to share initial, pre-disaster knowledge amongst the affected citizens, including that of related to disaster symptoms.
The existing disaster prevention and management performed by BPBD West Pasaman is lacking socialization of disaster mitigation.The socialization can be manifested in mitigation, simulation, and training with the purpose of to enable the disaster management, to make the affected people more sensitive and more responsive to the disaster, and to minimize the negative impacts of the disaster.This socialization can be performed in collaboration with local community groups, such as Kogami, HSNI, and three local leadership elements (tungku tigo sajarangan).
The normalization of River Batahan proposed by BPBD West Pasaman has not been properly responded by the central government because its authority is significant.This lacking central government response has prolonged flood threats on the local community.There must be a clarity of authority and responsibility between central government, provincial government, and regency/municipal government to avoid irresponsible manner, for example, the central government claims that it does not have responsibility for what is happening in the provincial or regency territory during the disaster.Furthermore, The Talamau landslide has become a serious problem for the affected people due to lacking equipment.The provincial government must help the regency government provide the adequate equipment by coordinating with concerned institutions and bodies.

Conclusion
West Pasaman had proven itself as the highly prone to natural disaster regency.Flood, landslide, earthquake, abrasion, and tsunami had been continuing to pose serious threats.This research applied a phenomenological approach because, on one hand, West Pasaman had been for generations identically with natural disasters, and, on the other hand, the authorized institutions did not seem to have knowledge, experience and capacity in dealing with the disasters.
The institutional capacity building of BPBD of West Pasaman is a mandatory option towards prime public service in terms of preferrable disaster prevention and management.

Recommendations
This research recommended the following points: a. Institutional capacity building of BPBD of West Pasaman based on investing in organisation and investing in networks; b.Active and direct involvement of disaster affected parties, such as NGOs, local leaders, community leaders, and Nagari government.Further effort can be taken by giving knowledge and extended information about tsunami and abrasion to the community living in the coastal areas; and c.The institution will perform well if it has a strong network.Therefore, investing in networks is also considered necessary to be taken into account.