Methodology for Improving Disaster Management Communications Networks

Daftar Isi
CHAPTER 1 : BACKGROUND STUDY.............................................................................................2

CHAPTER 2 : THE METHODOLOGY..............................................................................................5
2.1 ICT FOR DISASTER MANAGEMENT/ICT FOR DISASTER RESPONSE .............................................................................5
2.2 DISASTER MANAGEMENT ....................................................................................................................................6
2.3 WHY DISASTER MANAGEMENT.............................................................................................................................7
2.4 ICT FOR DISASTER PREVENTION, MITIGATION AND PREPAREDNESS.............................................................................8
2.5 KEY PLAYERS IN DISASTER WARNING...................................................................................................................8
2.4 CHANNELS USED FOR DISASTER WARNING...........................................................................................................11
0 Radio and Television............................................................................................................................ 11
0 Telephone (Fixed, Mobile and Satellite)............................................................................................... 11
0 Short Message Service.......................................................................................................................... 12
0 Cell Broadcasting.................................................................................................................................. 12
0 Satellite Radio....................................................................................................................................... 12
0 Internet/Email....................................................................................................................................... 13
0 Amateur and Community Radio........................................................................................................... 13
0 Sirens.................................................................................................................................................... 13
2.5 GIS AND REMOTE SENSING IN DISASTER MANAGEMENT ........................................................................................13
0 Planning................................................................................................................................................ 14
0 Mitigation............................................................................................................................................. 14
0 Preparedness......................................................................................................................................... 14
CHAPTER 3 : ORGANIZATIONAL STRUCTURE.......................................................................16
3.1 MAN POWER REQUIREMENT...............................................................................................................................16
3.2 EXPECTED DURATION OF THE STUDY...................................................................................................................17
4.1. DOCUMENTS...................................................................................................................................................18
4.2 ITEM TO BE REPORTED.......................................................................................................................................18
4.3 APPROACHES AND ACTIVITIES TO BE CONDUCTED...................................................................................................20
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001/P/T1/029/XI/2007 Methodology Disaster Management
RELEASE DATE: Communications Network
29 November 2007 Improvement
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Confidential Document Page 1 of 21
Chapter 1 : Background Study
Indonesia has recently been exposed to numerous natural disasters such as
earthquakes, tsunamis, sediment disasters and floods. However,
unfortunately, the preparedness for the society and communities to make
immediate reactions to natural disasters has not been well formulated or
accumulated. Particularly, the disaster observation, warning and reporting
communications is not properly functioning for the society and communities
to be well-informed to make quick reactions to the disasters.
Communications related with the disaster preparedness can be described as

two functions: (1) Early warning and (2) Reporting. For the early warning,
observing the natural phenomena such as earthquakes and rainfall forecast
the risk of disasters such as tsunamis and landslides, and finally delivering the
warning to the communities and authorities concerned are really important.
For the reporting of the disaster damages would be other important issue.
Without the right information on the severeness, geographical spread,
emergency response needs and so on regarding the disaster damage, the
governments and communities cannot respond for the quick recovery actions.
This study is to make a baseline survey for the new JICA's development study
project called “Disaster Prevention (Early Warning) in terms of the Role of
Concerned Government Organizations and Optimized of Transfer of
Information to the Public” which is to explore the optimal possibility of
network connections throughout the central and local governments in
Indonesia.
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Recent events have shown that there is no country that does not stand the
threat of a disaster, though they may be threatened at different levels.
Therefore, disaster preparedness is no longer a choice; it is mandatory
irrespective of where one lives. As shown in Figure 1, the Asia-Pacific region is
one of the most risk-prone areas for disasters, based on disaster occurrences
since 1995.
Figure 1 : Number of Disasters by Origin: Regional Distribution, 1995–2004
The consequences of natural and man-made disasters and the vulnerabilities

to which populations are exposed can be mitigated if they are targeted
proactively. Though one must always remember that it is not always possible
to completely eliminate a risk, extensive experience and practice in the past
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few decades have demonstrated that the damage caused by any disaster can
be minimized largely by careful planning, mitigation and prompt action. In this
context, information and communications technology (ICT) can potentially
play a pivotal role in disaster prevention, mitigation and management.
Remote sensing for early warning is made possible by various available
technologies, including telecommunication satellites, radar, telemetry and
meteorology. ICT encompasses both traditional media (radio, television) as
well as new media (cell broadcasting, Internet, satellite radio), all of which
can play a major role in educating the public on the risks of a potential or
impending disaster. Before disasters strike, ICTs are used as a conduit for
disseminating information on an impending danger, thereby making it
possible to take the necessary precautions to mitigate the impact of these
disasters. In order for this to be possible, it is critical that there be
consistency in the application of ICT and the dissemination of warning
messages to at-risk areas. Such warning dissemination must be widespread
and should educate the public on the potential risks to the local area. No
matter how expensive or sophisticated, a warning system can never be totally
effective without an education component. Furthermore, ICT plays a critical
role in facilitating the reconstruction process and in coordinating the return of
those displaced by disasters to their original homes and communities. Disaster
management activities, in the immediate aftermath of a disaster, can be
made more effective by the use of appropriate ICT tools. These include tools
for resource management and tracking, communication under emergency
situations (e.g. use of Internet communications), collecting essential items for
the victims, and national and international fundraising.
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Chapter 2 : The Methodology
Basically this study is to make a baseline survey. It will apply exploration
methodology study which makes use of quantitative procedure and qualitative
procedure. The method reaches ICT implementation. To minimize physical
destruction and human being deceased, disaster after effects may possibly
be managed. Information, Communication and Technology is capable to
constructive disaster positively.
2.1 ICT for Disaster Management/ICT for Disaster Response
The most difficult period of a disaster is the immediate aftermath. This period
calls for prompt action within an exceptionally short period of time. In the
aftermath of any disaster, a significant number of individuals will be injured
and/or displaced. Many of them may still be living with the trauma they have
encountered, including loss of loved ones. Affected individuals may also be
without food or other essential items. They might be waiting in temporary
shelters, with no idea what to do next. Some might need immediate medical
attention, while the disaster aftermath environment also creates ideal
breeding grounds for possible epidemics. Charged with leading the response,
authorities may find themselves with limited resources and without any
comprehensive plans to use them or to find more. They often need the help
of a third party, which can include donors, both institutions and individuals.
These institutions may have assistance to offer, but know no means in which
they can provide it as they may not have any link with those who are working
in the field. The following case studies illustrate how ICT can be used
effectively to address such problems in the immediate post-disaster period.
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2.2 Disaster Management
There are no standardized rules defining the different phases of the disaster
management cycle. Different agencies use different cycles depending upon
their objectives. However, while approaches vary, it is agreed that disaster
management activities should be carried out in a cycle. Figure 2 illustrates the
phases of the disaster management cycle, which are described as follows:
• Mitigation: any activity that reduces either the chance of a hazard

taking place or a hazard turning into disaster.
• Risk reduction: anticipatory measures and actions that seek to avoid

future risks as a result of a disaster.
• Prevention: avoiding a disaster even at the eleventh hour.
• Preparedness: plans or preparations made to save lives or property,

and help the response and rescue service operations. This phase
covers implementation/operation, early warning systems and capacity
building so the population will react appropriately when an early
warning is issued.
• Response: includes actions taken to save lives and prevent property
damage, and to preserve the environment during emergencies or
disasters. The response phase is the implementation of action plans.
• Recovery: includes actions that assist a community to return to a sense

of normalcy after a disaster.
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Figure 2 : The Disaster Management Cycle
These six phases usually overlap. ICT is used in all the phases, but the usage
is more apparent in some phases than in others.
2.3 Why Disaster Management
Disaster management (also called disaster risk management) is the discipline

that involves preparing, warning, supporting and rebuilding societies when
natural or man-made disasters occur. It is the continuous process by which all
individuals, groups and communities manage hazards in an effort to avoid or
minimize the impact of disasters resulting from hazards. Effective disaster
management relies on thorough integration of emergency plans at all levels of
government and non-government involvement. Activities at each level
(individual, group, community) affect the other levels.
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2.4 ICT for Disaster Prevention, Mitigation and Preparedness
The first important steps towards reducing disaster impact are to correctly
analyze the potential risk and identify measures that can prevent, mitigate or
prepare for emergencies. ICT can play a significant role in highlighting risk
areas, vulnerabilities and potentially affected populations by producing
geographically referenced analysis through, for example, a geographic
information system (GIS). The importance of timely disaster warning in
mitigating negative impacts can never be underestimated.
2.5 Key Players in Disaster Warning
They are several key parties that play major roles in the disaster management
process, especially in disaster warning:
Communities, particularly those most vulnerable, are vital to people-

centered early warning systems. Their input into system design and their
ability to respond ultimately determine the extent of risk associated with
natural hazards. Communities should be aware of hazards and potential
negative impacts to which they are exposed and be able to take specific
actions to minimize the threat of loss or damage. As such, the geographic
location of a community is an essential determinant in the selection of
disasters on which the system should focus their community education. For
example, coastal communities need to be educated and prepared for the
possibility of a tsunami, while a mountain community can be educated to
respond to an early warning system for landslides.
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Local governments should have considerable knowledge of the hazards to
which their communities are exposed. They must be actively involved in the
design and maintenance of early warning systems, and understand
information received to be able to advise, instruct or engage the local
population in a manner that increases their safety and reduces the potential
loss of resources on which the community depends.
National governments are responsible for policies and frameworks that

facilitate early warning, in addition to the technical systems necessary for the
preparation and issuance of timely and effective hazard warnings for their
respective countries. They should ensure that warnings and related responses
are directed towards the most vulnerable populations through the design of
holistic disaster response and early warning frameworks that address the
specific needs of the related micro- and macro-level actors. The provision of
support to local communities and local governments to develop operational
capabilities is an essential function to translate early warning knowledge into
risk reduction practices.
Regional institutions and organizations should provide specialized

knowledge and advice in support of national efforts to develop or sustain the
operational capabilities of countries that share a common geographical
environment. Regional organizations are crucial to linking international
capabilities to the particular needs of individual countries and in facilitating
effective early warning practices among adjacent countries.
International bodies should provide support for national early warning

activities and foster the exchange of data and knowledge between individual
countries. Support may include the provision of advisory information,
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technical assistance, and policy and organizational support necessary to
ensure the development and operational capabilities of national authorities or
agencies responsible for early warning practice.
Non-governmental organizations (NGOs) play a critical role in raising

awareness among individuals and organizations involved in early warning and
in the implementation of early warning systems, particularly at the community
level. In addition, they play an important advocacy role to help ensure that
early warning stays on the agenda of government policy makers.
The private sector has a diverse role to play in early warning, including
developing early warning capabilities in their own organizations. The private
sector is also essential as they are usually better equipped to implement ICT-
based solutions. The private sector has a large untapped potential to help
provide skilled services in the form of technical manpower, know-how, or
donations of goods or services (in-kind and cash), especially for the
communication, dissemination and response elements of early warning.
The media plays an important role in improving the disaster consciousness

of the general population and in disseminating early warnings. The media can
be the critical link between the agency providing the warning and the general
public.
The scientific community has a critical role in providing specialized

scientific and technical input to assist governments and communities in
developing early warning systems. Their expertise is critical to analyzing the
risks communities face from natural hazards, supporting the design of
scientific and systematic monitoring and warning services, fostering data
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exchange, translating scientific or technical information into comprehensible
messages, and disseminating understandable warnings to those at risk.
2.4 Channels Used for Disaster Warning
The following are some of the media – both traditional and new – that can be
effectively used for disaster warning purposes. Some may be more effective
than the rest, depending on the nature of the disaster, the regions affected,
the socio-economic status of the affected communities and their political
architecture. However, it is not a question of one medium against another. All
are means to a common goal of passing along disaster warnings as quickly
and as accurately as possible. Any one or combination of the following media
can be used for that purpose:
• Radio and Television
Considered the most traditional electronic media used for disaster

warning, radio and television have a valid use. The effectiveness of these
two media is high because even in developing countries and rural
environments where the tele-density is relatively low, they can be used to
spread a warning quickly to a broad population
• Telephone (Fixed, Mobile and Satellite)
Telephones can play an important role in warning communities about the

impending danger of a disaster. There were many examples of how simple
phone warnings saved many lives in South Asian countries during the
2004 tsunami. Public Switch Telephone Number (PSTN) and Public Land
Mobile Network (PLMN) will have main role at the disaster area where
satellite phone may back up most important function of communications if
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both phones can not be utilized cause of destroyed by disaster as
happened to Aceh or Bantul, Yogyakarta. Major of network infrastructure
may be damaged, other than satellite phone exploits signal directly to
satellite above the earth. No network infrastructure is needed. For
emergency condition, it is the best way.
• Short Message Service
Short message service (SMS) is a service available on most digital mobile

phones that permits the sending of short messages (also known as ‘text
messages’, ‘SMSes’, ‘texts’ or ‘txts’) between mobile phones, other
handheld devices and even landline telephones. Any data may be formed
and decoded as character text. It is able to be delivered up to 160
characters.
• Cell Broadcasting
Most of today's wireless systems support a feature called cell

broadcasting. A public warning message in text can be sent to the screens
of all mobile devices with such capability in any group of cells of any size,
ranging from one single cell (about 8 kilometers across) to the whole
country if necessary.
• Satellite Radio
Similar concept to Satellite phone, Satellite Radio utilizes or subscription

radio is a digital radio that receives signals broadcast by communications
satellite, which covers a much wider geographical range than terrestrial
radio signals. The equipment for signal transmission utilizes particular
antenna to broadcast information to satellite, then it is re-transmit to
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receiver gadget on earth. The diverse to Satellite phone is, this only one
way communication. Transmitter also usually appearances in enormous
device, rather than satellite phone featuring in handheld mechanism on
both two ways side.
• Internet/Email
The role Internet, email and instant messages can play in disaster warning
entirely depends on their penetration within a community and usage by
professionals such as first responders, coordinating bodies, etc.
• Amateur and Community Radio
For almost a century, amateur radio (also known as ‘ham radio’) operators
have assisted their communities and countries during disasters by
providing reliable communications to disaster relief organizations at a
moment’s notice – especially when traditional communications
infrastructure breaks down. Widespread frequency band varies from Very
Low Frequency to Ultra High Frequency. The frequency range affects
distance between transmitter and receiver.
• Sirens
Though not necessarily an ICT-based solution, sirens can be used in

tandem with other ICT media for final, localized delivery.
2.5 GIS and Remote Sensing in Disaster Management
GIS can be loosely defined as a system of hardware and software used for
storage, retrieval, mapping and analysis of geographic data. Spatial
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features are stored in a coordinate system (latitude, longitude, state,
plane, etc.) that references a particular place on the earth. Descriptive
attributes in tabular form are associated with spatial features. Spatial data
and associated attributes in the same coordinate system can then be
layered together for mapping and analysis. GIS can be used for scientific
investigations, resource management and development planning.
• Planning
Locating and identifying potential problems is a core requirement in

disaster management. GIS can be used effectively to achieve this
objective. Using a GIS, it is possible to pinpoint hazard trends and start to
evaluate the consequences of potential emergencies or disasters.
• Mitigation
After potential emergency situations are identified, mitigation needs can

be addressed. This process involves analyzing the developments in the
immediate aftermath of a disaster, evaluating the damage and
determining what facilities are required to be reinforced for construction or
relocation purposes. Mitigation may also include implementing legislation
that prevents building structures in areas prone to earthquake, flood or
tsunami.
• Preparedness
During the preparedness and response phases, GIS can accurately support
better response planning in areas such as determining evacuation routes
or locating vulnerable infrastructure and vital lifelines, etc. It also supports
logistical planning to be able to provide relief supplies by displaying
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previously available information on roads, bridges, airports, railway and
port conditions and limitations. Apart from this, activities such as evacuee
camp planning can also be done using GIS.
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Chapter 3 : Organizational Structure
3.1 Man Power Requirement
To conduct this project the requirement of Man Power are:
Position Job Qualification Allocation
Leader/Disaster Graduate/Post Graduate Degree 10-20 years 2 Months
Management General experience
Senior Specialist
Disaster Management Graduate/Post Graduate Degree 10-20 years 2 Months
Network Technical experience
Senior Specialist
Telecommunications Graduate/Post Graduate Degree 10-15 years 4 Months
Network Specialist experience
Disaster Observation and Graduate/Post Graduate Degree 10-15 years 4 Months
Reporting Specialist experience
Government Relations Bachelor Degree 5-10 years experience 4 Months
( Central )
Government Relations Bachelor Degree 5-10 years experience 4 Months
( Local )
Technical 1 Bachelor Degree 3-5 years experience 4 Months
General 1 Bachelor Degree 3-5 years experience 4 Months
Project Administration Bachelor Degree 3-5 years experience 4 Months
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3.2 Expected Duration of the Study
From the December 2007 to the end of March 2008
No Activities December 07 January 07 February 08 March 08
1 Baseline survey on internal
central government network
2 Baseline survey on central

to local government
network
3- Baseline survey on sample

1 internal local government
networks
3- Baseline survey on sample

2 local government disaster
reporting institutions and
systems
4 Final Reporting
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Chapter 4 : Reporting System
4.1. Documents
There are four documents involved as follows :
1) The Inception Report should be submitted for approval after
consultation with JICA
2) Progress Report should be submitted in the end of January 2008
(2 copies in English)
3) The Draft Final should be submitted to JICA with a briefing for
approval in the end of February 2008 (2 copies in English)
4) The Final Report should be submitted to JICA in the end of
March 2008 (2 copies in English)
4.2 Item to be Reported

Data and information collection related to the present status of information
exchange and reporting method:
1) Baseline survey on Internal Central Government Network
• Present status of communications infrastructure (networks owned
by public and private. Study existing connections and possible
alternatives).
• Disaster related government and government related
organizations, and structure, role and function of those
organizations.
• Operation record of the telecommunications networks
2) Baseline survey on central to local government network
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• Present status of communications infrastructure (networks owned
by public and private. Study existing connections and possible
alternatives)
• Operation record of the telecommunications networks.
3) Local government sampling survey should be implemented in the

following Pemda as foolows :
• Kabupaten North Bengkulu,
• Kabupaten Muko-Muko (Bengkulu)
• Kota Padang,
• Kabupaten Padang Pariaman (West Sumatra)
• Kabupaten Jember (East Java)
• Kabupaten Serang (Banten)
• Bali
3-1) Baseline survey on sample internal local government networks

• Current status of communication infrastructure (networks
owned by public and private.
• Study existing connections and possible alternatives)
• Government and government related organization
• Suitable communication device to communities
• Communications owned by private telecommunications
companies
3-2) Baseline survey on sample local government disaster reporting
institutions and systems
• Responsible institutions concerned with the disaster
observations and reporting to governments and communities.
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• Responsible institution's functions and actual response to
disasters
• Disaster observation systems for such as volcanoes, landslides
and floods, and its transmission measure
• Disaster reporting system to transmit disaster damage status
(visual images, quick reports, handwriting info, maps, and so
on) for both government, NGOs, and community to make quick
reactions.
4) Analysis of Survey Results
Analyzing the results of data and information collection into the
necessary study items for further development of the Disaster
Management Communications Network Improvement.
4.3 Approaches and Activities to be Conducted
1) Investigation of the existing methods for information transmission
2) Interviews with government related organization

• BAKORNAS
• Government and organization concerned (e.g. Ministry of Home
Affairs, Police, BMG, Public Works, and MEMR)
• SATKORLAK (in province)
• SATLAK (in kabupaten)
3) Investigation of emergency communication network
4) Investigation of network system

• within BAKORNAS, SATKORLAK, and PMI
• between central government and local government
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• local government to citizen
5) Content confirmation
• Warning information
• Emergency operation
• Restoration information
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Daftar Isi

CHAPTER 1 : BACKGROUND STUDY.............................................................................................2

Communications related with the disaster preparedness can be described as

Figure 1 : Number of Disasters by Origin: Regional Distribution, 1995–2004

The consequences of natural and man-made disasters and the vulnerabilities

2.1 ICT for Disaster Management/ICT for Disaster Response

• Mitigation: any activity that reduces either the chance of a hazard

• Risk reduction: anticipatory measures and actions that seek to avoid

• Prevention: avoiding a disaster even at the eleventh hour.

• Preparedness: plans or preparations made to save lives or property,

• Recovery: includes actions that assist a community to return to a sense

2.3 Why Disaster Management

Disaster management (also called disaster risk management) is the discipline

2.5 Key Players in Disaster Warning

Communities, particularly those most vulnerable, are vital to people-

National governments are responsible for policies and frameworks that

Regional institutions and organizations should provide specialized

International bodies should provide support for national early warning

Non-governmental organizations (NGOs) play a critical role in raising

The media plays an important role in improving the disaster consciousness

The scientific community has a critical role in providing specialized

2.4 Channels Used for Disaster Warning

• Radio and Television

Considered the most traditional electronic media used for disaster

• Telephone (Fixed, Mobile and Satellite)

Telephones can play an important role in warning communities about the

• Short Message Service

Short message service (SMS) is a service available on most digital mobile

Most of today's wireless systems support a feature called cell

Similar concept to Satellite phone, Satellite Radio utilizes or subscription

• Amateur and Community Radio

Though not necessarily an ICT-based solution, sirens can be used in

2.5 GIS and Remote Sensing in Disaster Management

Locating and identifying potential problems is a core requirement in

After potential emergency situations are identified, mitigation needs can

2 Baseline survey on central

3- Baseline survey on sample

3- Baseline survey on sample

4.2 Item to be Reported

2) Baseline survey on central to local government network

• Operation record of the telecommunications networks.

3) Local government sampling survey should be implemented in the

3-1) Baseline survey on sample internal local government networks

4.3 Approaches and Activities to be Conducted

1) Investigation of the existing methods for information transmission

2) Interviews with government related organization

4) Investigation of network system

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