The state of sustainable and disaster-resilient infrastructure in Indonesia

This paper discusses the paradigm shift in the way we think about disaster resilience and sustainability in the context of infrastructure, particularly in lower-income and disaster-prone countries like Indonesia. We highlight the importance of resilience as a critical component of sustainability, as it improves the agility and flexibility of infrastructure against future climate-related and other hazards. We discuss the potential trade-offs between disaster-resilient infrastructure and sustainable infrastructure and suggest that decision-makers can use a comprehensive approach that considers the overlap between the physical environment, social dynamics, metabolic flows, and governance networks to address these challenges. To obtain research objectives, a combination of three methods was used, namely policy analysis, case study, and comparative approach. This combination is to get a holistic picture of Indonesia’s conditions. This paper also presents several approaches that can be used to prioritize both resilience and sustainability in infrastructure projects.


Introduction
In recent years, there has been a paradigm shift in the way we think about disaster resilience and sustainability in the context of infrastructure.It has become clear that resilience is a critical component of sustainability.Traditional post-disaster reconstruction methods that focus on "build-back-as-before" leave communities vulnerable to future disasters.Alternative project delivery methods that integrate "build-back-better" and introduce more resilient infrastructure outcomes can improve the agility and flexibility of infrastructure against future hazards [1].This shift from disaster vulnerability to disaster resilience is a more proactive and positive approach that has been gaining traction in the last decade.As we move towards a more action-based resilience planning, it is critical to consider the overlap between physical environment, social dynamics, metabolic flows, and governance networks.
Resilience is an important aspect of sustainable infrastructure, especially in lower-income and disaster-prone countries, for several reasons: (1) Resilience improves the agility and flexibility of infrastructure against future hazards [1]; (2) Resilience is a proactive and positive approach that can help reduce disaster risk and reinforce sustainable development [2]; (3) Resilience enables complex systems to absorb disturbance while still being able to maintain a certain level of functioning [2]; (4) Resilience can help communities recover more quickly from disasters and reduce the long-term economic and social impacts of disasters [3]; (5) Resilience can help prevent future disasters by improving the design and construction of infrastructure [1]; (6) Resilience can help ensure that infrastructure is sustainable in the long term by considering the overlap between physical environment, social dynamics, metabolic flows, and governance networks [2].The purpose of this study is to provide an overview of the current sustainable and disaster-resilient infrastructure (SDRI) policy and practice implementation in Indonesia to provide a basis for further research.

Research Methods
This research employs a comprehensive approach to analyze the challenges and potential solutions for integrating resilience and sustainability in infrastructure projects.The research methods used in this studies are (1) policy analysis: examining Indonesia's national policies related to sustainable and disaster-resilient infrastructure, including the assessment of existing regulations and their integration; (2) case studies: analyzing real-world examples, such as the impact of earthquakes in Mamuju city and Cianjur, to understand the implementation of policies at the community level; and (3) comparative approach: comparing different approaches to infrastructure resilience and sustainability, highlighting trade-offs, and suggesting methods to prioritize both aspects effectively.
Overall, the research method combines policy analysis, case studies, and comparative evaluation to provide a holistic understanding of the subject.
The research paper aims to address the challenges of integrating resilience and sustainability in infrastructure projects in Indonesia.It emphasizes the importance of resilience as a critical component of sustainability in infrastructure, especially in disaster-prone countries like Indonesia.The study highlights Indonesia's vulnerability to disasters and the need for resilient infrastructure to protect communities and reduce long-term impacts.It also discusses the potential trade-offs between disasterresilient infrastructure and sustainable infrastructure, suggesting a comprehensive approach to address these challenges.

Resiliency vs Sustainability
Based on the data of BNPB, in 2016-2020 there were 17 thousand disaster events.In 2022 alone there were 2 thousand disaster events.These data indicates how prone Indonesia is to disaster.Chhibber and Laajaj [4] introduced a graph showing how big the economic loss is due to repeated disaster events in the same area.

Figure 1. The economic loss in areas affected by repeated disasters [4]
There has been no detailed study regarding the estimation of regional economic losses from repeated disasters in Indonesia.Repeated economic loss is certainly not sustainable for the local economy, social, and environment.For infrastructure to be sustainable, efforts are needed to anticipate disaster events [5].
Over the years, there has been a paradigm shift regarding the connection between sustainability and resiliency.Originally, the concept of sustainable infrastructure and disaster-resilient infrastructure were two separate and opposing concepts [6].For a system to be more resilient means that there is a need of higher resources which means that the system would be more unsustainable.Then Lounis and McAllister [7] defined that system resiliency will lessen the impact of disaster which makes it more sustainable.Lastly, Gillespie-Marthaler, Nelson [8] concluded that for an infrastructure system to be sustainable, it must also resilient given the high need of resources for repairs if it is not resilient.
According to a study by Hallegatte, Rozenberg [9], infrastructure resilience is a critical component of sustainable development in lower-income countries.The study highlights the need for a comprehensive approach to infrastructure resilience that considers the overlap between the physical environment, social dynamics, metabolic flows, and governance networks.Another study by the United Nations Development Programme [10] emphasizes the importance of balancing resilience and sustainability in infrastructure projects to promote sustainable development in lower-income countries.The study highlights the need for a comprehensive approach that considers the overlap between the physical environment, social dynamics, metabolic flows, and governance networks in addressing these challenges.
In lower-income and disaster-prone countries, resilience is particularly important because these countries are often more vulnerable to the impacts of disasters due to factors such as weak infrastructure, limited resources, and high levels of poverty.By improving the resilience of infrastructure, these countries can better protect their communities and reduce the long-term impacts of disasters.
Prioritizing sustainability measures may require significant upfront investment, which can be difficult to secure in the face of competing priorities for limited resources [3].The Urban Sustainability Framework (2018) recommends the more efficient use of existing infrastructure.Sustainable infrastructure projects may require significant upfront investment, which can be difficult to secure in the face of competing priorities for limited resources.
There can be potential trade-offs between disaster-resilient infrastructure and sustainable infrastructure.Some examples are: 1. Cost: Building resilient infrastructure can be more expensive than traditional infrastructure, which can make it difficult to prioritize sustainability measures that may have longer-term benefits [3] 2. Time: Building resilient infrastructure can take longer than traditional infrastructure, which can make it difficult to meet short-term development goals [1] 3. Resource allocation: Prioritizing resilience measures may require diverting resources away from other development priorities, which can create trade-offs between short-term and long-term goals [11] 4. Environmental impact: Building resilient infrastructure may require more resources and have a greater environmental impact than sustainable infrastructure, which can create trade-offs between resilience and sustainability [12] 5. Social impact: Building resilient infrastructure may require the displacement of communities or the destruction of cultural heritage sites, which can create trade-offs between resilience and social sustainability [2] Decision-makers can use a comprehensive approach that considers the overlap between physical environment, social dynamics, metabolic flows, and governance networks in addressing these challenges.Decision-makers can use alternative project delivery methods that systematically integrate "build-back-better" and introduce more resilient infrastructure outcomes.

Indonesia's Policies on SDRI
The current state of SDRI in lower-income and disaster-prone countries such as Indonesia is a topic of increasing importance.Disruption of infrastructure services can cause significant social and economic losses, particularly in the event of a natural disaster.Gillespie-Marthaler, Nelson [8] concluded that sustainable infrastructure should also be disaster-resilient.These two concepts should be merged and integrated as one unit in the policies.
The existing national-level regulations in Indonesia have embedded keywords related to sustainability and resilience in each other's policies.However, those two concepts in the regulations are yet to be integrated.

Disaster-resilient Infrastructure Policy
The highest policy related to disaster resilience in Indonesia is Legislation No. 24 of 2007 on Disaster Management.Infrastructure is mentioned only once, namely in Article 47 point 2b which states that disaster mitigation is carried out through development arrangements, infrastructure development and building planning.Other articles in this policy regulate the responsibilities and authorities of the government, institutions, rights and obligations of the community, the role of business institutions and international institutions, the implementation of disaster management, funding and management of disaster assistance, etc.
In its derivative policy, namely Government Regulation No. 21 of 2008 concerning the Implementation of Disaster Management, Article 20 states that development arrangements, infrastructure development, and building layouts are required to apply building technical standard rules stipulated by the competent agency/institution.

Sustainable and disaster-resilient infrastructure Policy
The following is a policy map (Figure 2) that we made related to SDRI policies in Indonesia which show the relationship between policies related to SDRI.At the end of the chain, the implementation of infrastructure policies in the project level follows technical guidelines and standards that can be upheld by infrastructure industry stakeholders.These technical guidelines and standards are the result of policy derivatives from the higher infrastructure policies, both those related to sustainability, resilience, and other factors.National policies related to sustainability, such as the PUPR Ministerial Regulation 9/2021 Guidelines for Implementing Sustainable Construction and Presidential Regulation 111/2022 Implementation of SDG, have embedded words related to disasters resiliency.However, the aspects of assessing resilience in these policies are still few.

Figure 2. Map of policies related to sustainability and disaster-resiliency in Indonesia
For example, the PUPR Ministerial Regulation 9/2021 Guidelines for Implementing Sustainable Construction only has 1 criterion related to disaster resilience, namely being resilient and reducing disaster risk with the highest points being having disaster risk adaptation/mitigation recommendations.Likewise with the Presidential Regulation 111/2022 Implementation of SDG which only has 1 global goal related to disaster resilience, namely developing quality, reliable, sustainable and resilient infrastructure, including regional and cross-border infrastructure, to support economic development and human welfare, with a focus on to affordable and equitable access for all.The goals in 2024 are likely to increase transport connectivity.

Discussions
Recently, Mamuju city hit by two earthquake that occurred in 2021 and 2022 and Cianjur was hit by an earthquake in 2022, we found that local governments follow standard operating procedures and other standards (SNI, Ministerial Regulations, Technical Specifications, etc.) issued by the central government regarding how the infrastructure is implemented.Unfortunatle, lessons learned are only delivered to the local government and community.Repairs with a 'build-back-better' concept in community buildings were carried out after they felt the significant impact of the disaster which is good thing to do, but it would be better if it was done before the disaster occurred.The local community does not know how to build earthquake-resistant buildings.They even just know the magnitude of the risk after being affected.Limited knowledge, resources, and funds are the main factors in the construction of community houses.Policies related to earthquake-resistant houses are not implemented properly at the community level.
Judging from the results of case studies in the field, response and recovery are, of course, disaster and location specific.Mitigation can be carried out in areas that have the same risks as those that have occurred in disaster-affected areas.Risk reduction, prevention, preparedness should be carried out on a regional to national scale.These 3 steps can be embedded into related infrastructure policies.Response and recovery are disaster and location-specific.Mitigation can be carried out in areas that have the same risks as those that have occurred in disaster-affected areas.Risk reduction, prevention, and preparedness should be carried out on a regional to national scale which should be embedded into related infrastructure policies.

Figure 3. Disaster response to preparedness cycle
Lower-income countries such as Indonesia face challenges in prioritizing sustainable and resilient infrastructure with limited resources.However, several approaches can be used to address these challenges.Disruption of infrastructure services can cause significant social and economic losses, particularly in the event of a natural disaster [3].Resiliency is used to promote policy, inspire disaster preparedness, and evaluate communities.The objective of building resiliency has been used to reduce the risks and become resilient to disasters [13].

Response
Recovery Mitigation

Risk Reduction Prevention Preparedness
To go to a nation that is sustainable and resilient, an assessment is needed beforehand.Measuring SDRI should be done to understand the level of sustainability and resiliency.Modern critical infrastructure systems are tightly coupled, resulting in unprecedented complexity and difficulty to predict, limit and control the consequences of disruptions caused by hazards.Therefore, a paradigm shift in disaster risk management is needed: instead of focusing on predicting events, resilience needs to be improved as a basis for adequate response to any event.
Indonesia can prioritize SDRI with limited resources by using a comprehensive approach that considers the overlap between physical environment, social dynamics, metabolic flows, and governance networks.Decision-makers should formulate a policy that can assess SDRI as a whole.Thus infrastructure stakeholder can move towards SDRI.

Conclusions
In conclusion, this paper highlights the importance of incorporating resilience as a critical component of sustainable infrastructure, particularly in lower-income and disaster-prone countries like Indonesia.The findings suggest that decision-makers can use a comprehensive approach that considers the overlap between physical environment, social dynamics, metabolic flows, and governance networks to address potential trade-offs between disaster resilient infrastructure and sustainable infrastructure.
The words 'sustainability' and 'disaster-resiliency' are indeed embedded in each other's opposite regulations.However, in practice, these concepts have not yet been integrated.There are already several policies related to the strength of the building structure.However, these policies only apply to buildings to be built.Lessons related to disasters often occur only after a disaster and are not conveyed to other areas.There is a need for policies that drive and regulate the concept of SDRI in Indonesia.
Several approaches are presented to prioritize both resilience and sustainability in infrastructure projects, including incorporating resilience in infrastructure prioritization, measuring disaster resilience, using alternative project delivery methods, and integrating a city's existing infrastructure vulnerabilities and carbon footprint.By using these approaches, decision-makers can prioritize both resiliency and sustainability measures and minimize potential trade-offs.

4. 1 .
Sustainable Infrastructure Policy Indonesia has committed to the 2015 Paris Agreement by issuing the Presidential Regulation No. 59 of 2017 which has been updated to no. 111 of 2022 concerning the Implementation of Achieving Sustainable Development Goals.This policy describes the global SDGs targets in the Indonesian context with adjusted objectives.The following strategic policies referred to the Presidential Regulation, such as the 2030 Agenda for Sustainable Development by Bappenas, the National Long-term Development Plan (RPJPN 2005-2025), the National Mid-term Development Plan (RPJMN 2020-2024), and other policies other derivatives issued by the relevant ministries.These policies embed sustainability targets with reference to the Presidential Regulation above.