J-PAL, Vol. 5, No. 1, 2014 ISSN: 2087-3522 E-ISSN: 2338-1671

Assessment of State Capacity to Manage Forest and Land Fires in Kubu Raya Regency, West Province

Lestari Agustrihardaning1,2 *, Irfan Islamy2, Mujibur Rahman Khairul Muluk2, Yonosuke Hara3

1 Local Disaster Management Agency, Province 2 Magister of Public Administration, Brawijaya University 3University of Tokyo

Abstract Forest and land fires in Kubu Raya Regency are caused by human activity such as farming by burning land and have caused a lot of environmental damage and material loss. There is a need to overcome or to minimize disaster by conducting activities aiming to reduce the risk and the impact. This paper focuses on the government capacity to address disaster, particularly forest and land fires in Kubu Raya Regency and describes government capacity, particularly within organizations, coordination among organizations, human and material resources, and budgets related to forest and land fires, in order to discover whether the capacity is strong or weak. It attempts to describe state capacity and to answer the question about the government capacity to manage forest and land fires in Kubu Raya Regency. The method that is used to analyze the question is a qualitative and descriptive method by doing interview and reviewing literature and documents related with the forest and land fires issues.This research found that government has the capability to address forest and land fires, but there does not exist a particular organization to handle the fires, lack of coordination, budget, and both human and material resources which proves that state capacity is still weak.

Keywords: disaster, forest and land, state capacity

INTRODUCTION1 issue. Central and local governments are in Forest and land fires in West Kalimantan, charge of the implementation of disaster especially in Kubu Raya have caused a lot of management. The responsibilities carried out by environmental damage and material loss. These the National Agency for Disaster Management fires are caused by human activity such as (BNPB) is of the central government and the farming by burning land. The government already Local Disaster Management Agency (BPBD) is of makes efforts to reduce the fires, but the lack of local government. organization to deal specifically with fires, as well BNPB is the organization responsible for as a limited budget of human and material coordinating disaster management among resources are the main reasons fires still happen. related organizations at several levels such as the This means that state capacity to overcome central government, provincial and regency disaster is relatively weak. BPBDs around , and the Indonesia There is a need to overcome or to minimize National Army (TNI) in the disaster management disaster by conducting activities aiming to reduce framework [1]. This will clarify which parties are the risk and the impact. Disaster management is able to mobilize all resources to address the a dynamic process of managing multiple emergency related with disaster management in functions such as prevention, mitigation, case of disaster. In case of disaster, there will be preparedness, emergency response, and many parties actively involved in disaster recovery. Among those, prevention is the most management so one organization is needed to important because it can minimize the budget coordinate those parties. According to Maarif and reduce the impact as much as possible. Also, (2010), disaster management has always used a it is important to understand that disaster responsive approach to handle disaster during management is not just a one-department and after it has occurred [2]. approach but is rather a cross-departmental Capacity refers to a government’s ability to respond effectively to change, make decisions efficiently and responsively, and manage conflict * Correspondence address [3]. Investing in state effectiveness improves the Lestari Agustrihardaning state’s ability to implement a range of policies. Email : [email protected] Alamat : Jl. Putri Candramidi Gg. Sukahati No.6 They found that in the development community, 78116, Kalbar

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a lack of state capacity as manifested in weak Similarly to Thirunayukarasu, Nugroho (2010) states is often cited as a major obstacle to divided the potential causes of the disasters into development, such as low legal capacity, civil 3 types: natural disasters (earthquakes, volcanic war, and lack of fiscal capacity [4]. eruptions, hurricanes, landslides, droughts, The aim of this paper is to give a brief forest/land fires due to natural factors, pest or explanation on the government capacity to plant diseases, epidemic, incidence of address disaster, particularly forest and land fires occurrence, and space incidence), non-natural in Kubu Raya Regency. It describes governmental disasters (forest/land fires caused by humans, capacity, particularly within organizations, transportation accidents, construction/techno- coordination among organizations, human and logy failures, the impact of the nuclear industry, material resources, and budgets related to forest explosions, environmental-pollution and space and land fires, in order to discover whether the exploration activities), and social disasters (social capacity is strong or weak. Government has the unrest and social conflict). Those definitions capability to address forest and land fires, but a provide a general view of disaster because they particular organization to handle the fires, does provide an understanding of the different types not exist. There is a lack of coordination, budget, and the causes of disaster [8]. and of both human and material resources. In order to overcome a disaster, an effort Furthermore, the less damaging impact of fires called disaster management is necessary. All compared with floods has made the government communities are vulnerable to disaster, both prioritize funds for flood management. natural and man-made. Disaster management is This paper attempts to describe state capacity a cyclical process; the end of one phase is the and to answer the following question: To what beginning of another, although one phase of the extent is the government capacity to manage cycle does not necessarily have to be completed forest and land fires in Kubu Raya Regency? in order for the next to take place [6]. Disaster management needs a special organization that LITERATURE REVIEW has a good capacity for dealing with disaster so It is important to begin with understanding that the process runs well. The government of and describing some concepts connected with Pakistan established the National Disaster disaster, disaster management, and state Management Authority (NDMA) in 2007 as proof, capacity. This provides a review of background in theory at least, that the state is developing its readings on the subject. capacity for disaster management, from Disaster, Disaster Management, and State preparedness through to response Capacity underconstruction [9]. Disaster has several meanings and definitions. The National Institute of Disaster According to Quarentelly (1985), disaster is a Management New Delhi (2013) stated that crisis situation that far exceeds the affected capacity has been defined as the ability of the community's capabilities. It is similar to VUSSC people, organizations, and society as a whole to that describes disaster as a situation in which the manage their affairs successfully. Every community is incapable of coping. Furthermore individual, community, and organization should VUSSC explains that disaster is a natural or have some inherent capacity that needs to human-caused event which creates intense beacknowledged and further developed [10]. negative impacts on people, goods, services, Similarly, Rondinelli and Cheema (2003) and/or the environment, exceeding the affected argued that the state plays a critical role in community’s capability to respond; therefore, alleviating poverty, protecting the environment, the community seeks the assistance of promoting human rights and human security, and government and international [5,6]. ensuring gender equity-all necessary conditions Thirunayukarasu mentioned that disasters are for spreading the benefits of global economic mainly divided intotwo types: natural disasters and social interaction more widely [11]. A state is (earthquakes, floods,land slides) and man made said to have "failed" if it does not fulfill the most disasters (war, bomb blasts, chemical leaks). basic obligations of statehood and institutions to According to Thirunayukarasu, the phases of all provide adequate services to the population [12]. disasters, be it natural or man made, are the Furthermore Cochrane (2008) explained that the same but oftendiffer in quantity of damage or in existence of a central government agency quality of the type of medical consequences [7]. responsible for all aspects of disaster management, such as NDMA, should be utilized

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to its full potential. He stated that while its respond to the earthquake in Mexico City can be capacity may still be weak, donors and divided into two time period segments: the first international agencies, which genuinely want to three days after impact and the remainder of the support the primary responsibility of a sovereign fortnight. They found that in the first level the state for victims of humanitarian emergencies, response was lacking coordination, involving should seize the opportunity that is now available duplicative efforts, and resulting in some [9]. organizational conflict, but in the second level Local capacity is all potential resources activities by a number of federal and district available to carry out disaster management. The agencies were effectively coordinated [15]. higher the threat, the higher the risk of the area. The institutional structure in response to the Similarly, the higher the level of vulnerability of 2005 earthquake and to the 2007 floods in local residents, the higher the level of risk. On the Pakistan were very different. According to contrary, the higher the skill of local residents, Cochrane, an ad hoc relief agency (FRC) was set the smaller the risk faced. up to respond to the earthquake, while the Pros and Cons of Disaster Management National Disaster Management Agency (NDMA) There are differences in handling disasters was set up for the floods. The capacity of NDMA between one country and another. Coordination was very weak during its response to the floods is critical in flood disaster management to with only had less than ten staff members, very overcome the inevitable fragmentation resulting limited logistic and financial resources. He also from departmental specializations, geographic found that the geographical location of the boundaries, and among operational phases in the disasters influences on the different patterns of disaster cycle. They stated that coordination state response [9]. begins with sharing of information, but also The response to Hurricane Katrina is an requires the capacity to use such information example of the poor response arising from a effectively and to implement various intervention failure to manage a number of risk factors. Poor measures [13]. coordination and disagreements among the Natural disaster management system in the actors about what to do and who was to do it are United States is structured, in its ideal form, as a the reasons for the failures. Moynihan found that bottom-up model where local governments are better coordination among the network of in charge of first response. According to them, responders, a greater sense of urgency, and because a natural or technological disaster more successful management of related risk occurs in a specific geographic area, the local factors would have minimized some of the losses government of jurisdiction has the primary caused by Katrina [16]. responsibility for managing the event. When When disaster happens, the government state and local governments are overwhelmed by cannot handle this problem alone. It needs a disaster, the federal government likewise external support and volunteers in order to provides financial resources and other assets improve disaster management. The government relevant to response and recovery [14]. of Pakistan's response to the earthquake was While Pakistan’s immediate relief response to very quick-within 12 hours, an open invitation to the earthquake has been widely praised by the international humanitarian agencies had been United Nations, it is also recognized that the issued, and the government made efforts to country was poorly prepared for a disaster of this facilitate their arrival, registration and access. It magnitude, despite warnings in previous years of was found that the ability of international potential seismic activity. The military stepped in agencies to support and to build up local state very quickly to play a key role in the relief capacity largely depends on the relevant response, rather than a civilian authority, due to authorities, but a good balance must be achieved their superior technical and logistical capacity, to ensure that relations with the central and existing presence in affected areas [9]. These government are not threatened through closer experiences indicate that the structures are not coordination at the local level [9]. yet well enough established or resourced for Volunteer assistance is important because it local state authorities to perform responsibilities can be quickly provided by people living or in responding to disasters. Instead, their level of working close to damaged areas. Volunteers can success largely depends on the effectiveness of also augment emergency staff with basic skills the individual authorities. Activities of and support activities, allowing responders to governmental and private organizations to focus their efforts on specialized work [17].

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Volunteer typically involves two concepts: consisting of: 388,392 forest ha (47%) including provision of a service of one’s own free will 171,477 ha of protected forest, 98,104 ha of and/or provision of a service without promise, production forest, 53,041 ha of conversion expectation, or receipt of compensation for the production forest, and 65,769 ha of rested. service. Type of the volunteer is divided into three: volunteers on assigned resource, recruited volunteers, and spontaneous volunteers [18]. Some examples of using volunteers, especially emergent groups related to spontaneous volunteers are citizens who developed an ad hoc system for transporting commodities as a response to the Mexico City earthquake. A group of telecommunications employees and companies created a system and process to identify the location of missing persons' mobile phones as a response to the World Trade Center towers' collapse. During the Figure 1. Area of Forestry in Kubu Raya Regency,2011 recovery from a tornado in central Florida (Ha) [20] volunteer agencies combined to create a common disaster relief [18]. Forest and Land Fires Those studies provide a general view of state According to Law 6 of West Kalimantan capacity in managing disaster. Government Province, 1998 regarding the prevention and establishes a organization responsible for control of forest and land fires, ”forest” is a field handling the disaster, but the capacity and the of growing trees, and is a natural living characteristics are different among the various environment. An area outside the forest, both organizations. Some disasters may need national vegetated (reed, shrubs, cultivated plants, etc.) capacity, while others could be effectively and non-vegetated are intended for managed locally. development in the field of agriculture, The perspective of this paper is that disaster plantation, forestry, transmigration, mining, and management needs good coordination among others. related organizations. Organizational coordina- Forest fires in the disaster area includes tion is the important factor to implement damage of the forest's products and loss of disaster management effectively and to assess objects of scientific, economic, or environmental the capacity of the government in handling value. Further, the law stated that land fires are disaster. Kubu Raya Regency already has a also a state where the land affected by the fires disaster organization to manage forest and land experiences degradation, leading to loss of fires, but it pays less attention to the problem objects of scientific, economic, and or due to the scarce impact of the fires. Moreover, ecological/environmental. the lack of human resources is another factor The main cause of burning forests and land is that hampers disaster management. This is in line human activity to exploit forest and land with Cochrane’s (2008) explanation about the resources. Government policy to protect forest limitation of the staff, logistic, and financial resources and land from the threat of fire has resources during the response to the floods in been unsuccessful. Broadly speaking, the causes Pakistan [9]. Moynihan (2009) also stated that of forest and land fires can be grouped into four better coordination among the related categories: (1) agriculture, (2) natural, (3) institutions would have minimized the losses biological, and (4) socio-economic culture [21]. caused by disaster (i.e. Katrina) [16]. Judging from the type, forest and land fires according can be divided into three kinds, namely Forest and Land in Kubu Raya Regency [22]: Kubu Raya Regency is the new area of the 1. Ground fires: fires occurred in the humus main regen cy, Pontianak Regency, established by layer of soil. Until now there is no easy method Law number 35, 207, West Kalimantan Province to cope with fires of this type, because all [19]. methods require the availability of water in very As we seen in figure 1, in 2011, the forest large quantities. In the dry season, water supplies area in Kubu Raya Regency is 831,771 ha, are usually very limited.

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2. Surface fires: fires on the ground, or on agency is responsible for formulating policies in shrubs that do not reach the leaves of trees. Fires disaster management and displaced person of this type are likely to occur on the critical land management through rapid, accurate, effective where trees have been felled. To handle this type and efficient actions, and is also responsible for of fire, many methods are developed. the coordination of disaster management among 3. Crown fires: fires in the canopy to the top of government offices and multi-stakeholders. high trees. In the regions, the agency tasked with Technically, a forest fire (U.S. Force in Brown conducting disaster management is the Local & Davis, 1973) is defined as the combustion Disaster Management Agency/BPBD. BPBD is process that spreads freely, and consumes forest established both at the provincial and fuels such as grass, litter, twigs, dead wood, regency/city levels. BNPB at the central level and poles, weeds, shrubs, and trees' fresh foliage BPBD at the local level, are responsible for the [22]. formulation of policies related to disaster and displaced people. The body is also tasked with The Actors Involved the coordination of disaster management related The actors have an important role in the activities [23]. success of a state program. This means, that BPBDs of West Kalimantan is a new agency those implementing policies know their positions established by the governor of West Kalimantan's and their responsibilities well in the Regulation 76, 2009 as mandated by law with the implementation of the policy. In the policy of aim to reduce the incidence of disaster as well as managing forest andland fires in the Kubu Raya its risk and its impact. As a new agency in Regency, various actors are involved: the government, the position of this agency is under governmental agencies, community members, other organizations established earlier, so the and industrial companies. All these actors have allocation of funds and resources is not optimal. different roles and responsibilities, but they have To improve its task, the establishment of BPBDs the same goal to manage forest and land fires at the regency level is needed and one of the and to minimize the impact of these fires. They BPBDs in West Kalimantan Province is BPBDs should coordinate and cooperate with each other Kubu Raya Regency established based on Kubu in order to prevent and to manage fires. Raya Regency Regulation 14, 2009. Government Organizations Community Government organizations related with the Besides government organizations, the managing of forest and land fires in Kubu Raya support from the community is also important. Regency, include: (1) Environment Agency, which As mentioned in law 6 of West Kalimantan, 1998, has the task of managing local government efforts to prevent and control forest and land affairs in the field of the environment, based on fires need participation of all stakeholders, the principles of autonomy, job de-concentration including community members around the forest and assistance duties; (2) Plantation, Forestry, and land area, especially in fire prone areas. The and Mining Office, which has the task of carrying efforts involving active community members are out the affairs of local government in the areas of a form of community participation in plantation, forestry, and mining, based on the development. principles of autonomy, job de-concentration and The establishment of a fire care community is assistance duties; (3) Health Office, which has one of the government efforts to maximize the tasks related with the health of people due to the community's role in forest and land fire impact of fires; (4) Manggala Agni, which is an management. A fire care community is a Indonesian forest fire control brigade formed by community organization concerned with helping the Ministry of Forestry in order to carry out the government with prevention and to extinguish task of forest fire control activities, including forest and land fires. Fire care community is prevention, outages, and post-fire management. under sub-district control, and there is an However, Manggala Agni is not only involved in implementers' unit located at the village level. handling forest fires but also the community and Forest and land fires occurring in West company land fires. Kalimantan, especially in Kubu Raya Regency, Based on Law 24, 2007 on Disaster need special and more attention from Management, the key agency tasked with government and related parties-both disaster management at the national level is the communities and plantation companies. National Agency for Disaster Management. This Generally, it is difficult to determine the most

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culpable agents among plantation companies, and land fires control policy. These interviews are communities, weather factors, or soil conditions. aimed to identify what the critical process and However, based on information, companies problems in controlling forest and land fires might be the main actor causing forest and land process and literature review: the study of fires. literatures is meant to obtain or to get accurate So far, community members have always theories and references regarding to the data of been blamed as the biggest arsonists, but this is the result findings related topublic policy not true. People start burning the land for early analysis, documents and also Law, Act and farming during the dry season between April and regulation. Those literatures can be found in the August. People burn a maximum of 2 ha government office, library, internet, and other according to agreements among the community. related offices. If people burn their land and damage other Data Analysis people land or negatively impact land around The data analysis in this qualitative research them, they are punished by paying the consisting of three concurrent flows of activity: appropriate reimbursement. Meanwhile, it is not data reduction, data display, and conclusion yet known exactly whether company did a drawing/verification. massive burning as well in the dry season or not. Peat land, which is common in Kalimantan, is a RESULTS AND DISCUSSION soil type that has heat and can even sustain fire Causes of Forest and Land Fires at a certain depth; this can spread widely to the In Kubu Raya, the main cause of fires is land surface. human activities, and only a small part is caused Company by nature. Human activities include land-clearing A company's involvement in forest and land for farming by companies and farmers. Important fire management is also important so that the reasons for these activities include a cheaper policy can function well and align with cost, shorter time, practicality, and efficiency. expectations. Even though many companies still This activity is done usually in the dry season burn for reasons of efficiency, cost-saving, and between April and August. This can be seen in speed, they should consider the impact that can Table 1 on hotspot recapitulation. hamper those around the affected area. Among those companies, there are a few that realize Table 1. Hotspot Recapitulation in Kubu Raya Regency and West Kalimantan Province that land-clearing by burning is bad, so they use Year/Area heavy equipment to clear the land and to start No Month 2008 2009 2010 2011 2012 planting. KR Kalbar KR Kalbar KR Kalbar KR Kalbar KR Kalbar 1 January 0 0 0 55 0 16 5 68 6 45 2 February 0 14 0 48 0 29 11 68 5 57 RESEARCH METHODOLOGY 3 March 0 16 0 30 0 35 12 68 26 133 The type of research method that is used for 4 April 0 32 0 79 0 32 50 162 14 158 5 Mei 0 346 0 81 0 11 5 62 30 167 this study is qualitative method. Qualitative 6 June 0 118 0 250 0 40 24 213 56 390 method properly seeks answers to questions by 7 July 0 46 0 1677 0 23 31 530 44 329 8 August 0 2108 0 6528 0 347 84 2533 118 2515 examining various social settings and the 9 September 0 2822 0 1284 0 532 40 1011 77 2511 individuals who inhibit these settings [25]. To 10 October 0 270 0 91 0 542 6 79 14 217 answer the question, this research focuses on the 11 November 0 41 0 8 0 55 1 21 2 17 12 December 0 4 0 17 0 0 0 6 1 11 state capacity of Kubu Raya Regency to manage Total 0 5817 0 10148 0 1662 269 4821 393 6550 forest and land fires specifically the base of policy % 0.00% 0.00% 0.00% 5.58% 6.00% implementation, the actors involved, and the Source (processed): [26] results of the implementation.Thispaper is aimed to analyze the government capacity to manage From Table 1, we see that between April and forest and land fires in Kubu Raya Regency. August a high number of hotspots were Qualitative method emphasizes in theories and observed, which are related to an increase in the literature. burning activity of the farmers and the Collecting Data Process companies in order to start planting. However, This study mainly used a qualitative data the fires are also high in September and October collection method. On the basis of research when farmers are not burning anymore and have question, the data collection is done with started planting. We also see from the table that interview: a series of interviews is done with local between 2008 and 2010 the number of hotspots government unit that isclosely related to forest observed in Kubu Raya Regency is 0, but

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according to other sources the number of fires in the local community and company area. For 2009 and 2010 were 451 and 22 for Kubu Raya 2009-2011, the fires happened in community Regency respectively. This difference is due to areas but the action is only on the ground. differences in the way of recording the number Financial and human resources are the main of hotspots, either because of the tools used or obstacles in overcoming fires. Kubu Raya Regency because of the method of calculation. is new regency so the problem of limited funds To overcome forest and land fires, the and personnel are major problems to address government of Kubu Raya Regency has done fires. Manggala Agni and Fires Care Community better in its prevention efforts, as well as in post- are groups formed to help the government fire extinguishing. The most effective method is overcome and reduce fires. Manggala Agni was fire prevention because the fire will be easier to established by the Indonesian Ministry of extinguish when small and will not spread into Forestry in 2003 and formed in order to carry out unwanted areas. Establishment of a forest fire the task of forest fire control activities including community and a brigade of forest and land fires prevention, and handling of post-extinction of control will not be effective if there is not a good forest fires (Directorate of Forest Fires Control). level of cooperation among related parties who During its development, Manggala Agni not only are involved in fire control. controls the fire in the forest, especially the The reason companies’ burn land is that it is conservation area, but also on land. Fires Care cost-effective, faster, and more efficient. Burning Community is comprised of members of the land without using heavy equipment will save community who volunteered to devote power at money and time and does not need much labor. the lowest level in helping government, The community reason for burning is that it is especially in preventing and combating fires. fast, practical, efficient, effective, and The establishment of specific organizations inexpensive, and community members do not that handle fires in open land and in communities know any other better and cheaper way to clean will help prevent fires that damage humans and up the land for a place to plant and grow crops. the environment. Indeed, the government has In dealing with fires, unfortunately the formed a team of commandos implementing government cannot function effectively in forest and land fire control at the provincial level, overcoming this issue. Regulations and policies but the lack of coordination among agencies led related to the prevention and control of fires are to the slow process of handling. still not able to reduce the incidence and the Discussion influence of fires. Reducing the amount of Prevention hotspots does not mean that the number of fires In carrying out disaster management decreases. The reduction could be due to the particularly of fires, of course BPBDs Kubu Raya reduction in burning land, or weather factors that will not work alone, but will cooperate with other made soil conditions more humid, or deadly fires organizations. These organizations include the that are underground. Police, Environmental Agency, the Plantation, Forestry, and Mining Office, the Health Office, Table 2. Forest and Land Fires Report and Manggala Agni. All organizations should Year No Area (ha) work together for prevention and post-fire 2008 2009 2010 2011 management. On prevention efforts, almost all of 1 Burning 280 424 105.35 687.05 2 Extinguish 296 104 8.5 380.75 the aforementioned organizations have programs Source (processed):[24] addressed to the community and the company. Socialization both of community members and Table 2 shows that the number of burn areas the company, as well as training regarding fire has increased from year to year but the prevention, giving and distributing means to the extinguishing area has also increased, but if we community, should be done regularly (every look at the ratio of burning to extinguishing year) according to the available budget. This will areas, 2008 is the best year. The amount of the minimize the incidence of fires. burning area is located in local area but 2 ha is Table 3 shows that even when there are the maximum area of the burning, whereas the many organizations interlinked on the aspect of numbers of companies burning is not much but service, the assistance provided or received is the burning area is big. In 2008, the burn area unconfirmed by others. Number 1 means that was successfully extinguished both in terms of there is a confirmed relation among organizations and 0 means there is no confirmed

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relation among organizations. The organization personnel, Manggala Agni also has enough system depends on many stakeholders, but the means to extinguish the fires. However, inter-organizational relationship is low, because sometimes in handling this fire, Manggala Agni the roles in coordination are not clearly also faces difficulties, especially if the location is identified. In addition, the concept of far and quite difficult to reach and to which to cooperation and the concept of capability are not water. implemented well. The organization should focus Manggala Agni plays a more active role and is more on developing its own capability, but in directly related with communities and companies reality the organizations are relying more on in both prevention and post-fires. People are other organization resources [27]. more familiar with Manggala Agni and often asked Manggala Agni for assistance more often Table 3. Inter-organizational Relationship on the Aspect than government organizations, because ofService Delivery in Kubu Raya Regency sometimes government is rather complicated No Organization 1 2 3 4 5 6 7 8 1 Executive 1 1 1 1 1 1 1 and bureaucratic. 2 Regional Military 1 1 1 1 1 1 1 In the disaster management team of forest Command fires, BPBDs is not included as an active 3 Local Disaster 1 1 1 1 1 1 1 organization both for prevention and handling Management during and after a fire. BPBDs as an organization Agency is particularly established to overcome the 4 Police 1 1 1 0 0 0 1 disaster and should be involved as a core 5 Environmental 1 1 1 0 0 0 1 Agency member or as the main coordinator collecting 6 Plantation, 1 1 1 0 0 0 1 and coordinating other organizations in case of Forestry, and disaster. Mining Office Budgeting 7 Healht Office 1 1 1 0 0 0 0 In accordance with the mandate of the law, 8 Manggala Agni 1 1 1 1 1 1 0 the state gives budget priorities on education, Source (processed): [27] health and public works. Budgets for disaster

management is relatively small compared to the BPBD is the main organization in case of a budget of education, health or public works. disaster. BPBDs will gather information and Meanwhile, the budget for each type of disaster assistance from other organizations for disaster can be seen in Table 4. response based on each organization's duties. BPBDs meet regularly with organizations related Table 4. Indicative budget for each hazard In the to forest and land fires to share information of National Disaster Management Plan the forests and environment as well attempts to Indicative prevent disaster. No. Hazard Budget % Coordination among organizations related to (Billion Rp.) 1. Earthquake 12,489.0 53.2 disaster management cannot be said to be weak 2. Tsunami 4,007.5 17.1 or not good. The organization has its own duty 3. Volcano Eruption 931.0 4.0 and function to handle fires. The Plantation, 4. Land Mass 1,111.6 5.7 Forestry, and Mining Office handle fires related Movement to the forest, plantation, and mining area; Health 5. Flood 2,150.0 9.9 Office sees the impact of fires on society as 6. Drought 650.2 2.8 caused by the smoke arising, Police act if there is 7. Forest and Land 474.5 2.2 a big fire and send out a helicopter to extinguish Fires 8. Erosion 380.5 1.6 it, and the Environmental Agency will see the 9. Building and Housing 312.5 1.3 impact of fires on the environment. However, the Fires main point is, Manggala Agni is the main actor to 10. Extreme Wave and 241.5 1.0 manage forest and land fires in Kubu Raya Abrasion Regency and local residents are more dependent 11. Extreme Weather 197.0 0.8 on assistance from Manggala Agni if fires happen. 12. Technological Failure 151.5 0.6 Post-Fire 13. Epidemics and 210.5 0.9 Disease Outbreaks Unlike the prevention, the post-fire effort still 14. Social Conflict 156.5 0.7 depends on Manggala Agni which is always on TOTAL 23,463.8 100 standby to handle fires. Besides having trained Source: [23]

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We see in Table 4 that the budget for forest rehabilitation and reconstruction. These activities and land fires stands in seventh place, which is must be conducted continuously by setting Rp. 474,500,000,000 for five years or an annual development policies that will reduce the average of Rp 94,900,000,000, and it is also incidence of disasters. below floods. This means that governments do Forest and land fires in West Kalimantan not pay much attention to fires even though the Province, especially in Kubu Raya Regency, are impact of fires spreads to neighboring countries due to human factors: companies and local and damages the environment and natural farmers cleaning their land by burning and ecosystem. continuing with planting. According to In West Kalimantan, floods or cyclones are information from some sources, companies are given higher priority than fires because the burning land more than local farmers, causing impact of floods and cyclones are felt directly, smoke and disturbing transportation. and fires are predictable (in the dry season) and The government of Kubu Raya Regency has still regarded as an ordinary case. A low budget an important rule to manage this issue. A lack of allocation indicates that state attention is more government concern for the fire issue is proved focused on disasters that have a huge impact on by an organization handling the disaster. The humans and the environment. human resources, means, and funds are not Human Resources and Equipment enough. In general, it can be concluded that Kubu Raya is a new regency as a division of government has the capability to address forest the Pontianak Regency. As a new regency, the and land fires, but there does not exist a allocated budget is still very limited and the particular organization to handle the fires. priority is on education, health, and public works. Further, there is a lack of coordination, budget, Human resources in almost all agencies and and of both human and material resources, offices, mostly come from Pontianak Regency which proves that state capacity is still weak. employees, but the number is limited. As in Policy Recommendations BPBD, there are only 12 employees [24]. This is It is suggested for the government of Kubu too small if we compare it with the large number Raya Regency that handling disasters, particularly of people in Kubu Raya Regency and areas prone forest and land fires, should be given more to fire disaster. It is difficult to optimize disaster attention. Here are recommendations for management efforts without cooperation and government: coordination with other organizations. 1. Establish a part in disaster institution that Besides a few number of employees, specializes in handling forest fires, land fires, and equipment resources for disaster management is residential fires. This new part should be still limited. The means for firefighting still provided with good equipment to ease the depend on Manggala Agni, which has human mobilization and the fire management effort. resources and adequate equipment. Manggala 2. Government should approach plantation Agni members, who have been trained to deal companies persuasively and discuss the forest with fires in practice, are always ready to help and land fire issue. By sitting together, it will be people in case of fire. With sufficient means and possible to realize the problem facing the human resources, it is hoped that disaster plantation company and to find the best solution management efforts can be maximized. to minimize fires. Based on the data of available means and From the Japan Fire Service, there are some human resources of Manggala Agni related to lessons that can be implemented by local forest and land fires, these means and human government: resources are enough to manage fires. However, 1. Provide knowledge to students starting from sometimes there were difficulties extinguishing elementary school and extending to senior high fires due to the limitation of water and the school on disaster management efforts and distance. preventive action, and what they should do in case of disaster. CONCLUSION AND POLICY RECOMMENDATIONS 2. Enhance the capacity and skill of the forest Conclusion and land fire service personnel by giving Disasters are unpredictable so it is necessary education and training at fire academies, and fire for all organizations, companies, and society to training in other countries. anticipate them. This anticipation includes prevention, emergency response, and

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ACKNOWLEDGEMENTS http://www.icm.tn.gov.in/article/disaster.ht First and foremost, I would like to express my m. Mei 31, 2013. deepest gratitude to Allah Swt for beautiful life, [8] Nugroho, S.P. (2010). Karakteristik Bencana full with blessed, love and happiness in my life, Gagal Teknologi di Indonesia particularly for giving me a chance enjoying a [Characteristics of Failure Technology beautiful life and being a part of Linkage Disaster in Indonesia]. Jurnal Dialog Program. I sincerely thank my advisor, Prof. DR. Penanggulangan Bencana, Vol.1 No.1, M. Irfan Islamy, MPA, DR. M.R. Khairul Muluk, Tahun 2010, 8-20. M.Si, and Prof. Yonosuke Hara, who provided [9] Cochrane, H. 2008. The Role of the Affected valuable guidance and recommendations for this State in Humanitarian Action: A Case Study paper. I would also like to express thanks and on Pakistan.Overseas Development appreciation to the faculty of Brawijaya Institute. London University and GRIPS, whose lectures enriched [10] National Institute of Disaster Management, my knowledge of economic and public policy. My Human Resource and Capacity Development thanks to all of my colleagues in Brawijaya Plan for Disaster Management and Risk University and GRIPS, and last but not least, I Reduction in India (Government of India. sincerely thank GRIPS and Brawijaya University New Delhi, 2013. staffs for their kind cooperation. Above all, I wish [11] Rondinelli, DA.& Cheema, SG. 2003. to express my warmest thanks to my beloved Reinventing Government for the Twenty- mother, sisters, and brothers who always support first Century: State Capacity in a Globalizing and inspire me. Society. Kumarian Press,Inc. 1294 Blue Hills Avenue, Bloomfield, USA. REFERENCES [12] Carment, David. (2003). Assessing State [1] Subiyantoro, I. (2010). Selayang Pandang Failure: Implications for Theory and Policy. tentang Bencana [Overview on Disaster]. Third World Quarterly, 24 (3): 407-427. Jurnal Dialog Penanggulangan Bencana, 1 [13] Manuta, J. Khrutmuang, S. Huaisai, D. & (1): 43-46. Lebel, L. (2006)Institutionalized incapacities [2] Maarif, S. (2010). Bencana dan and practice in flood disaster management Penanggulangannya, Tinjauan dari Aspek in Thailand. Science and Culture, January- Sosiologis [Disaster and Its Management, February 2006 Vol. 72, NOS. 1-2. from Sosiology]. Jurnal Dialog [14] Gerber, BJ. and Cohen, DB. 2008. Disaster Penanggulangan Bencana Vol. 1 No. 1 Management Handbook. In Pinkowski, J. Tahun 2010, 1-7. Katrina and Her Waves: Presidential [3] Bowman, Ann and Kearney, Richard. 2011. Leadership and Disaster Management in an State and Local Government. Wadsworth Intergovernmental Context. CRC Press/ Cengage Learning. Boston, USA. Taylor & Francis Group. pp. 51-74. [4] Besley, Timothy and Persson, Torsten. 2009. [15] Dynes, RR., Quarantelly, Enrico L., Wenger, State Capacity, Conflict and Development. Dennis E. 1990. Individual and http://people.su.se/~tpers/espa_final_0910 Organizational Response to the 1985 15.pdf Earthquake in Mexico City, Mexico. [5] Quarentelly, E.L. 1985. Definiton of Disater. [16] Moynihan, Donald P. (2009). The Response http://www.cyen.org/innovaeditor/assets/ to Hurricane Katrina. International Risk Disaster_Management_Notes_and_Questio Governance Council, Geneva. ns.pdf [17] Fernandez, Lauren S., Barbera, Joseph A., & [6] Virtual University for Small States of the Van dorp, Johan R. 2006a. Strategies for Commonwealth (VUSSC) Disaster Managing Volunteers during Incident Management Version 1.0. Introduction to Response: A Systems Approach. The Journal Disaster Management. of the Naval Postgraduate School Center for http://www.col.org/SiteCollectionDocumen Homeland Defense and Security, II (3):1-15. ts/Disaster_Management_version_1.0.pdf. [18] Fernandez, Lauren S., Barbera, Joseph A., & Mei 25, 2013. Van dorp, Johan R. 2006b. Spontaneous [7] Thirunayukarasu, P. Tanpa Tahun. An Volunteer Response to Disaster: The Integrated Approach to Disaster Benefits and Consequences of Good Management. Intentions. Journal of Emergency Management, 4 (5): 57-68.

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