A policy analysis on the inclusion of disabilities in natural disaster management in Indonesia

Climate change increases the occurrence of natural disasters. From 1909-2023, Indonesia experienced 613 natural disasters. The flood, which had 268 incidents, was the most significant natural disaster. Indonesia is known for being one of the world’s flood-prone areas. This is due to tidal water inundation, sea level rise, river overflows due to high rainfall, and land subsidence and urbanization. In facing climate change and dealing with natural disasters, no one must be left behind. Indonesia has had a policy for managing natural disasters since 1961, but Indonesia only had natural disaster management related to involving people with disabilities in 2007. This research aims to analyses the process of involving people with disabilities in managing natural disasters. The research uses qualitative methods with content analysis policy. The study finds Indonesia already has a national legal basis for involving disabilities from the planning, implementation, monitoring and evaluation stages as well as in the Disaster Risk Reduction Forum. This study concludes that there is a need for integrity between the central government and regional governments in managing natural disasters with the involvement of disabilities.


Introduction
Human economic activities, including the utilization of fossil fuels and methane from food production, are the main contributors to climate change [1].The global impact of hazards that become disasters has increased significantly [2].The consequences of disasters include the loss of human resources, infrastructure damage, and migration of people to safer places [3].
The world risk index ranks Indonesia as the third state with the highest disaster risk [4].According to the Emergency Event Database, Indonesia experienced 613 natural disasters between 1909 and 2023.The highest disaster in Indonesia is floods, with 268 incidents occurring between 1909 and 2023 [5].High rainfall, tidal water inundation, and sea level rise are the causes of this.Apart from that, flooding is also caused by land subsidence and urbanization [6].The potential for flooding to impact lives, livelihoods, change ecosystems, cause damage to agricultural systems and water resources, spread epidemics, and have emotional and physical impacts on humans has been recognized as a serious global threat [7,8].
The people and ecosystems that were affected have a sensitive and adaptive capacity determine the severity of climate change impacts, resulting in the dynamic nature of vulnerability [9,10].Risks can vary at many levels across communities, societies, and people in society, depending on culture, gender, religion, and disability are just some of the contextual factors that can lead to inequalities [11][12][13][14][15].The impacts of the climate emergency are more severe for people with disabilities because of their ability to take protective action.They are also often left out of adaptation planning [16].
Individuals with disabilities constitute 16 percent of the world's population [17].Individuals aged 5 and older have disabilities in Indonesia, with a prevalence of 1,4% [18].Indonesia has disaster-prone areas.In 5 of the 17 goals of the Global Goals for Sustainable Development, the topic of disability is specifically discussed [19].Considering the current global approach to disability inclusion.Disaster management policy in Indonesia must be better able to comprehend the situation of individuals with disabilities.This study is focused on examining the changes in policy paradigm for managing natural disasters in Indonesia that involve individuals with disabilities.

Research Methods
This research uses a content analysis policy.Data collection for this research was carried out through regulatory searches to obtain information from state databases [20], 1) policy scanning activities carried out in August-September 2023 by conducting targeted data searches on state websites; 2) search and data collection is carried out by visiting the state website directly and looking for natural disaster management regulations; 3) searching for data on the country's website is carried out by entering the JDIH regulatory data base and entering the keyword "disaster management" in the search column on the site; 4) the resulting documents are downloaded as research data.The government-targeted websites used as research sources are the National Disaster Management Agency website (https://web.bnpb.go.id/jdih/) and the Directorate General of Legislation and Regulations website (https://peraturan.go.id).
Policy analysis was carried out on policies between 1961-2008.The year 1961 was chosen because Indonesia had its first disaster management policy.In 2008, the last time Indonesia changed its disaster management agency.The process of qualitative content analysis involves summarizing crude information into categories or subjects that are based on substantial deductions and elucidations [21].The analysis of data using NVivo 14 was conducted in multiple stages, 1) Data obtained from government websites was collected; 2) determine the unit of analysis with the theme of natural disaster management; 3) Carry out coding development with keywords "disability", "vulnerable", "fair", and "equitable"; 4) Assess the coding system; 5) Make sure to code all the text; 6) Determining conclusions from the data; 7) Data analysis results.This stage was carried out to find out the history of the government's focus on involving disabilities in disaster management as a policy and to recognize their involvement in disaster management.

Results and Discussion
The development of Indonesian policy in disaster management began in 1961.In 1961, Indonesia formed the Natural Disaster Shelter Committee.Then, it changed in 1965,1966,1979,2001,2005.The last change was in 2008, the institution changed to the National Disaster Management Agency.At the regional level, for disaster management, the Regional Disaster Management Agency was formed.The table below shows the changes in risk disaster management institutions in Indonesia.This appears the advancement evolution of paradigm changes in disability involvement.The table above contains the following information, Indonesia's policy regarding disasters since 1961 with the formation of the Natural Disaster Shelter Committee (Panitya Panampungan Bentjana Alam) until 2005 with the formation of the National Disaster Management Coordinating Agency (Badan Koordinasi Nasional Penanganan Bencana/BAKORNAS PB) has not provided an inclusive policy commitment in disaster management, especially disabilities.The Government came to the realization in 2007 that the current disaster management policies were not strong and comprehensive legal bases due to their lack of alignment with society and the Indonesian people's needs, causing a hindrance to the planned, coordinated, and integrated disaster management efforts.
In 2007, the Republic of Indonesia Law Number 24 of 2007 was passed.This regulation guarantees inclusiveness in planning, emergency response and rehabilitation after a disaster occurs.Using the term "vulnerable groups", the topic of inclusion is mentioned.This vulnerable group consists of an infant, toddlers, and children, mothers who are pregnant or breastfeeding, individuals who have disabilities, aged people.This regulation is also the first step to organization of the National Disaster Management Agency, this clearly indicates when this law takes effect, within 6 months, the National Disaster Management Agency will be established, then A Regional Disaster Management Authority will be established at the end of a year.
By Government Regulation No. 8 of 2008, the National Disaster Management Agency was created.Comprehensive policies can be implemented through the fair and equitable implementation of guidelines and guidance provided by the National Disaster Management Authority for calamity administration endeavors such as fiasco avoidance, crisis reaction, recuperation, and reconstruction.Fairly and reasonably, disaster management has not been explicitly addressed by previous policies.Regulation No. 3 issued in 2008 by the Head of the National Disaster Management Agency serves as the foundation for the formation of the Regional Disaster Management Agency.It advocates for inclusion by safeguarding communities against the danger and effect of natural disasters, via social protection and a sense of safety, particularly for groups at risk of natural disasters.Apart from that, the government also carries out emergency response starting from rapid assessment, determining the level of disaster, rescue and evacuation, ensuring that vulnerable groups and disaster victims are provided with basic rights like food, life services, drinking water, hygiene needs, clothing, shelter, temporary shelter and psycho-social services.The government has increased inclusiveness by issuing the policy of Head of BNPB Regulation 14 of 2014.The regulations provide explanations for the terms "persons with disabilities", "people with multiple disabilities", "rehabilitation of people with disabilities" and "habilitation".The mission of this policy is to ensure that people with disabilities have the rights and needs they deserve by facilitating access and ensuring that people with disabilities are included in the process of planning, execution, monitoring and evaluation, to the extent possible such as the Natural Disaster Risk Reduction Forum, and developing the capacity of people with disabilities to manage natural disasters (including those with disabilities, those who assist them, their loved ones, and the general population).
Analyzing the policy content in the Regulation of the Head of the National Disaster Management Agency Number 14 of 2014.The organization, protection and participation of people with disabilities is what this regulation focuses on.Three activities are part of disaster management.First, a pre-disaster with several activities, an early warning system must reach people with disabilities and every household whose members have disabilities must have a preparedness plan at the household level.Second, emergency response with several activities, accommodating the basic needs of individuals with disabilities, shelter facilities, considering ease of access for people with disabilities, providing education in disaster situations must ensure continuity of education for people with disabilities, and psychological assistance with disabilities.Third, post-disaster activities, reducing disaster risks and catering to addressing the center on assembly the particular needs of people with incapacities ought to be the center of post-disaster recovery and recreation.

Figure 1. Areas of Indonesia without a Regional Disaster Agency
In accordance with the information provided by the National Disaster Management Agency [22], there are still four provinces out of 38 provinces that don't have a Regional Disaster Management Agency and 57 regencies/cities out of 548 regencies/cities that don't have a Regional Disaster Management Agency.This causes people with disabilities not to be accommodated in natural disaster management policies.Institution and policies relating to emergencies and disasters are used to prevent and respond effectively to disasters [23].If in policy and institutional terms, there is no Regional Disaster Management Agency.In general, central and local disaster prevention is not integrated, resulting in communities being left behind in disaster management.

Conclusion
Indonesia's policy on disaster management institutions has been in place since 1961, but it wasn't until 2007 that it introduced a policy that involved disabled individuals.Disabilities were first mentioned in terms of vulnerable groups in the policy Law of The Republic of Indonesia Number 24 of 2007.Regulations regarding the inclusion of disabled individuals in disaster management are further regulated by regulations issued by the National Disaster Management Agency and the Regional Disaster Management Agency.National Disaster Management Authority regulations emphasize the importance of disaster management being conducted on the basis of justice and equity.Other cases stipulated by local disaster prevention agency regulations, there is an emphasis on natural disaster management, especially for disaster-vulnerable groups and carrying out emergency response starting from rapid assessment, determining the level of disaster, rescue and evacuation, handling vulnerable groups and ensuring respect for the underlying rights of disaster victims.In the Head of National Disaster Management Agency No. 14 of 2014, under regulation, disabled individuals should be involved in disaster management.Three disaster forestallment activities that involve disabilities.The government's disaster management policies have evolved from not involving people with disabilities to including them in disaster management, as evidenced by this research.This shows the government's orientation towards leaving no one behind.Of the 38 Provinces there are still 4 provinces that do not yet have a Regional Disaster Management Agency and of the 548 Regencies/Cities there are 57 Regencies/Cities that do not yet have a Regional Disaster Management Agency.This must be the government's concern to create a Regional Management Agency which does not yet have one because without policies and institutions, there will be no integration in central and regional government disaster management.As a result, people with disabilities in the area are left unprotected and unable to participate in disaster management.

Table 1 .
Paradigm Shift in Disaster Management