Humanitarian Civil-Military Coordination in Emergencies: Towards a Predictable Model
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IndonesiaSection 1: Humanitarian civil-military coordination in the Indonesia Disaster risk profile infographic To be inserted Evolution of humanitarian civil-military coordination in Indonesia Civil-military coordination has been shaped by a number of contextual influences, including the historical role of the Indonesian Armed Forces (Tentara Nasional Indonesia, TNI) and the frequency and scale of natural disasters. The Armed Forces are a primary responder in disaster response operations, and have been deployed on a frequent basis in recent years, as part of the Military Operations Other Than War doctrine.71 The leading role of the Armed Forces in disaster response has been influenced by the organizational structure, military practices, clear chain of command and coordination combined with the ability for rapid deployment.72 This includes the ‘dual role’ or dwifungsi, which until 1998 institutionalized roles for the Armed Forces not only in security operations, but in political and economic spheres. The Indonesian National Police were a part of the TNI until 1999, which also impacts on how the police are integrated into the disaster management architecture. Complex security environments in a number of regions have also influenced civil-military coordination.73 Following the Indian Ocean Tsunami in 2004, and the introduction of global initiatives such as the Hyogo Framework for Action, the Indonesian approach to disaster management shifted towards a broader disaster risk management approach, including a greater focus on preparedness and mitigation, in addition to response and recovery. In 2007, the introduction of a new legal framework established a new disaster management agency at the national and regional levels as well as a framework for further development of disaster management procedures and processes. Over the last decade, disaster response capacity has further developed in the national and regional agencies, and relevant government ministries, the police force (Kepolisian Negara Republik Indonesia, POLRI), the Armed Forces and provincial and local government have developed dedicated resources for disaster response. Launched in 2016, BNPB and New Zealand are working on the establishment of a National Disaster Response Framework, which aims to bring together the various elements of disaster preparedness and response under one umbrella framework. At the regional level, Indonesia has been a strong proponent of ASEAN’s regional disaster management capacity as articulated through the ASEAN Agreement on Disaster Management and Emergency Response (AADMER).74 Indonesia also plays an active role in hosting the ASEAN Coordinating Centre for Humanitarian Assistance on disaster management (AHA Centre). In 2016 Indonesia took on the chair role for the ASEAN Committee on Disaster Management (ACDM), the body overseeing the implementation of AADMER, and is developing a National Disaster Response Framework (NDRF) which is expected to be completed in 2017.
Indonesia has developed legal and policy frameworks regulating international assistance, and was among the first globally to incorporate International Disaster Response Law (IDRL) provisions into domestic frameworks.75 In the context of a large-scale disaster affecting multiple Member States, and where national capacity is heavily impacted, Indonesia may accept targeted offers of international assistance.76 This has been the case in responses to disasters such as the West Sumatra Earthquake in 2009. Complementing assistance from in-country international humanitarian organisations have been welcomed in smaller scale disasters. Foreign military assistance in the context of Indonesia In previous large-scale disasters such as the 2004 Indian Ocean Tsunami, foreign military assets have been deployed to support response operations. Indonesia has military assistance agreements with a number of other Member States, including some ASEAN neighbours. Over the past decade, a number of coordination processes and mechanisms for incoming foreign military capabilities in the event of a large-scale disaster have been developed.77 Guidance for operationalising these mechanisms is being further developed in 2016, including through revisions of BNPB Regulations no 10 /2008 and 14/2010 on emergency response command system, which accommodate resources from cluster members. Foreign military assistance during emergency response will be coordinated by GoI national counterparts (i.e. Ministry of Defence and TNI HQ), that will establish the MNCC as part of Multi-Agency Coordination Centre (MAC). In 2016, BNPB, with support from the AHA Centre and UN OCHA, will provide detailed plans for the activation of the MAC (i.e. the implementation in the context of Indonesia of the Humanitarian Military Operations Coordination Concept (HuMOCC), that would see the co-location of the On-site Operations Coordination Centre, the Joint Operation Centre of the ASEAN AHA Centre (OSOCC/JOCCA), and the Multi National Coordination Centre (MNCC), including the use of information sharing platforms.78
National legal and policy frameworks for disaster management Indonesia’s first comprehensive, overarching legislation for disaster management was the Law of the Republic of Indonesia, Number 24 of 2007 Concerning Disaster Management. It contains provisions for responsibility and authority of the government; principles for approaching disaster relief; and disaster aid financing and management. The still relatively new National and Regional Disaster Management Agencies (BNPB and BPBDs) have a clear legal mandate and defined administrative frameworks and responsibilities.79 A further suite of guidelines such as Regulations 21 and 23 of 2008 provide guidance on Disaster Management, and Participation of International Institutions and Foreign Nongovernmental Organizations in Disaster Management, respectively. BNPB Regulation 22 of 2008 provides guidance on Disaster Aid Financing and Management. As outlined in Law 24 of 2007, the Government decides on the disaster emergency status dependent on the scale of the disaster. The authority for the declaration of emergency status is outlined below:
BNPB has over 80 specific regulations, which provide greater operational detail about the application of the general legal principles. There are also Ministerial Regulations providing guidance on responding to disasters, such as the Ministry of Home Affairs Regulation No. 131/2003 on Guidelines for Managing Disaster and Internally Displaced Persons (IDPs). The Disaster Management Strategic Policy of 2015-2019 specifically covers natural disaster mitigation, with one of the seven focus areas being natural disaster management.81 The three strategic objectives include:
The forthcoming National Disaster Response Framework will provide further guidance in articulating roles and responsibilities in disaster response, in addition to the development of operational guidance on foreign assistance. These developments continue to be worked on by both BNPB and national civil society with the ongoing assistance of donors, UN agencies and international and national NGOs. BNPB is in the process of revising its regulations 10/2008 and 14/2010 on Emergency Response Command System to clarify issues around overlapping roles and functions of incident commanders at district/municipality, provincial and national levels, as well as inflexibility in mobilizing and allocating resources for a prioritized area (especially when a disaster affects multiple districts/municipalities). Appointed by the Head of District/Mayor immediately after an occurrence of disaster, an Incident Commander has tactical operational capacity and mobilizes resources of and for the affected district/municipality. The Area Commander serves to support the Incident Command Posts in coordinating resources that cannot be managed by district/municipality, and consolidates and shares situation analysis from affected districts/municipalities. To manage national resources, a National Forwarding Post will be established to support the Area Commander in responding to the needs from district/municipality. The Deputy Chief of BNPB will coordinate the post, which comprises various government ministries and agencies including TNI and the Police. Regional/international assistance will be coordinated by ASEAN’s AHA Centre and UN OCHA, with a consideration of ASEAN centrality for assistance provided by ASEAN Member States. At the disaster affected area, mobilized ASEAN ERAT will establish the Joint Operations Coordinating Centre for ASEAN (JOCCA) while an On-site Operations Coordination Centre (OSOCC) will be established by UNDAC. JOCCA and OSOCC will be co-located and share a number of functions between them. They will work under the instruction of the Multi Agency Coordination (MAC) Centre together with MNCC and the National Forward Centre.
The Armed Forces have a designated mandate in disaster response. The role of the Armed Forces in Military Operations Other Than War (MOOTW) is outlined in Law No. 33 of 2003, and further developed with regards to implementation in Law No. 34 of 2004 on the Indonesian Armed Forces. This includes facilitating humanitarian relief and management of internally-displaced persons (IDPs).82 Provisions for the role of the Armed Forces are also delineated in Law 24 of 2007, and Presidential Regulation No. 8 of 2008, that state that the Armed Forces are one of the directing elements in the management of disaster response.83 The National Disaster Management Plan 2010-2014 and BNPB Guideline 22 on the Role of the International Organizations and Foreign Non-Government Organizations during Emergency Response also outline specific responsibilities for the Armed Forces in the management of disaster response, including coordinating mechanisms for the entry of foreign military personnel and capabilities.84 The doctrine of the Armed Forces further outlines the principles and the role of the military in disaster response. However in general this is focused on internal security rather than Humanitarian Assistance and Disaster Relief. Guidelines for the Armed Forces for Humanitarian Assistance and Disaster Relief are currently under development. Section 2: National coordination mechanisms and actors in disaster response Badan Nasional Penanggulangan Bencana (BNPB)
Composition: BNPB comprises of a Disaster Management Steering Committee and a Disaster Management Executive Committee. The Disaster Management Executive Committee comprises of: a Chief Secretariat; four deputies for prevention and preparedness, emergency management, rehabilitation and reconstruction and logistics and equipment; a chief inspectorate, center and technical implementing unit The Disaster Management Steering Committee is appointed by Parliament, and comprises 19 members including officials from eight government departments and ministries; Indonesian Armed Forces; Indonesian National Police; and nine expert members comprising of:
Indonesian Armed Forces (Tentara Nasional Indonesia, TNI) Table form Insert TNI logo/s Established 1945 Leadership President of Indonesia; Minister of Defence; Commander of the Armed Forces Components Indonesia Army, Indonesia Navy, Indonesia Air Force and the Indonesia Marine Corps No. of personnel 345,000 active personnel Headquarters Cilangkap, Jakarta Army Area Commands (kodams) 86 Divided into twelve kodams (areas) that cover 34 provinces Functions in disaster response Search and rescue activities; leadership in managing disaster response through the Incident Command; deployment of medical teams; deployment of equipment and other facilities; coordinating member of the Satuan Reaksi Cepat Penanggulangan Bencana (SRC PB) or Indonesia Rapid Response & Assistance (INDRRA) Team; IDF Disaster Relief Rapid Reaction Force Task Unit (Satuan Tugas Pasukan Reaksi Cepat Penanggulangan Bencana TNI / Satgas PRCPB TNI) This unit was established to support BNPB in disaster relief operations. It is deployed on the order of the Commander of the Armed Forces.87 Following the arrival of the INDRAA team standby unit, Satgas PRCPB will come under the coordination of the INDRAA team leadership. Civil-military coordination mechanisms Civil-Military Operations Centre (CMOC) is similar to the ICS at district municipality level. Lead government agencies in disaster response There are over 30 government agencies at each of the national, provincial and district levels that have constituted responsibilities in disaster preparedness, response and recovery operations. The Ministry of Health provides health and medical services; the Ministry of Social Affairs provides basic relief items and; the Ministry of Public Works reconstructs public infrastructure, conducts spatial planning and enforces building codes. BASARNAS, the national search and rescue agency also has the power to deploy personnel and equipment from the military and police.88 The Department of Foreign Affairs and Department of Defence also have key roles in coordination international humanitarian and military assistance. National Cluster System Table/text box Established by BNPB Cluster System Decree of 201489 Operational guidelines X Clusters Health, nutrition and food security, education, WASH and shelter, protection and CCCM, and USAR90 National cluster leads X Operational protocols In development Functions refers to a model of coordination by grouping the clusters based on the work of humanitarian actors for a more definitive provision of better emergency response by determining the 'leaders' of group/cluster. Cluster leaders together with government sectors build coordination in the planning as well as execution. The cluster approach aims to provide more coordinated emergency response among actors from both government and non-government institutions. The cluster approach is implemented on a large scale disaster or in case the government needs the international assistance in multi-sector response with broad participation of international humanitarian actors.91 Location XX Coordination with BNPB XX Role of military XX Role of OCHA XX Cluster focal points in provincial areas XX Process for activation XX End table/text box A government-led platform for inter-cluster coordination is in development. X Insert cluster coordination diagram Subnational coordination In Indonesia, responsibility for disaster management is decentralized to the provincial and district government levels. In accordance with Law 24 of 2007, Regional Disaster Management Agencies (Badan Penanggulangan Bencana Daerah or BPBDs) were established. Disaster management agencies have been created in the 34 provinces, and local disaster management agencies (BPBDs) exist in a small percentage of the districts and cities in the country. BNPB is mandated with building the technical capacity and disaster management skills of local BPBD. This includes planning (risk assessments, contingency plans and response plans) and practical skills (rapid assessment, response coordination and command, logistics, needs assessment and coordination of recovery and rehabilitation).Training and simulation exercises continue to be conducted at the district/city and village levels, contributing towards building local capacities for response, risk assessment, and community-based DRR.92 Within the three tiers of Indonesian government – (1) National, (2) Province and (3) Sub-national – there are 511 sub-national governments (SNGs). The SNGs are split into two levels: kelurahan (rural) and desa (urban).
District level autonomy has increased the number of levels at which disaster coordination is required as well as increased diversity in how disasters may be managed. Individual districts may or may not choose to utilise the BPBD structure, in some cases preferring to stick with older mechanisms or even develop their own alternative structures or laws. Example X Districts may determine their own recovery plans, pass their own laws allowing or restricting access and make their own decisions on where disaster relief funds should or should not be prioritised.93 (Is this still the case?) In 2007, Presidential directives on disaster management coordination outlined that:
Once a disaster emergency status has been declared the National and Regional Disaster Management Agencies obtain easy access to: Mobilization of human resources, equipment, and logistics Immigration, excise, and quarantine Licensing Procurement of goods/services Management and accountability for money and/or goods Rescue Command over sectors/institutions Emergency Operations Centres Emergency Operation Centres (EOCs), led by the provincial disasters management agencies, or BPBDs, are the coordination hub in disaster response for multi- agency command and coordination, decision-making and information management at the provincial level. EOCs have been established in a number of provinces and are linked up via a national disaster management information system. A priority for BNPB is establishing and strengthening EOCs in all provinces of Indonesia, including improving operation capacity and systems, data collection for scenario and risk mapping and infrastructure support. Operational guidelines X Leadership X Members X Activation X Role of military in EOCs X Functions X Incident command system Indonesia has recently adapted the US Incident Command System (ICS). (Latest update required here) Table Operational guidelines X Functions ICS is a standardized, on-scene, all-hazard incident management concept. Users adopt an integrated organizational structure that reflects the complexities and demands of single or multiple incidents. It is designed to enable effective and efficient incident management by integrating a combination of facilities, equipment, personnel, procedures, and communications operating within a common organizational structure. It is designed to facilitate interoperability between disaster response personnel and other agencies in different jurisdictions. Leadership An Incident Commander (IC) (generally from the Armed Forces) is appointed by BNPB or the relevant BPBD as the On-Site Coordinator and reports to the head of local government. As the On-Site Coordinator, the Incident Commander has authority to deploy all available resources and is responsible for overseeing the mobilization of human resources, equipment, logistics, and rescue. A disaster plan is also prepared by the Commander to be used for the disaster response. Activation The ICS is activated by the President, Governor, Bupati or Mayor based on recommendation of the Head of BNPB or BPBD at the provincial or district/city levels. The ICS is implemented during emergency response phase, generally from 7-14 days. Liaison X Interoperability X Coordination with other mechanisms X (the national cluster system, civil-military coordination centre) etc. Role of the military X Application X Main Incident Command Post (MICP)/Operation Control Centre As part of the ICS, a main incident command post is established. Regulation Number 21 of 2008 outlines the command process in emergency response. The operation control centre is activated and becomes the command post for the response. The function of the command post coordinate is to control, monitor, and evaluate the disaster emergency response. It is the lead in providing and maintaining access to data and information. Following the initial emergency response phase, leadership of the main incident command post will transition to the Head of the relevant BPBD. In large scale emergencies, a national incident command post will be established at the disaster area. The national incident command post facilitates provision of support to the local incident command post. The OSOCC is established within MAC (coordination function rather than command function) Field command post Field command posts are established by the Commander according to the disaster location and level. The field command posts will provide disaster response and communicate information to the main incident command post. End table Insert incident command structure diagram Insert local and national incident command structure coordination diagram Indonesia Rapid Response and Assistance (INDRRA) Team The Indonesia Rapid Response and Assistance (INDRRA) or Satuan Reaksi Cepat Penanggulangan Bencana (SRCPB) mechanism was established in 2009. It is composed of civil-military forces from various relevant line ministries/agencies dispatched to assist affected local government in undertaking emergency activities in timely and integrated manner and undertake rapid assessment on the impacts of the disaster as well as the humanitarian needs, during the initial /early stage of the emergency phase.
End Table Section 3: Coordination of Foreign Military Assistance International assistance In the event of a large-scale disaster also affecting neighbouring countries where national capacity is heavily impacted, Indonesia may accept offers of targeted assistance.94 Existing legal and policy frameworks provide some guidance on the provision of international assistance. BNPB Guideline 22 of 2010, or Guidelines on the Role of International Institutions and Foreign Non-Government Organisations state that “international organizations and foreign non-government organizations may be allowed to take their role on disaster management in case that the Government of Indonesia announces the needs and/or accept the offer of assistance in line with the regulation and needs in the affected area.”95 Recently, the development of the Emergency Response Preparedness (ERP) framework for Indonesia highlighted the different categories under which international response and coordination mechanism may have to function. It also highlighted the correlation between the scale of a potential disaster, and the corresponding role of international assistance and associated guidelines. Operational guidelines, and interoperability frameworks for larger scale disasters affecting other Member States and requiring the potential deployment of foreign military assets are still needed. Start Infographic Humanitarian assistance from international organizations and foreign non-government organizations may be accepted in the following circumstances:
Process for the entry of the international assistance is based on the following:
End infographic Government Regulation 21 of 2008 contains some provisions for incoming international assistance, including the process for permits and visas, for which the Head of BNPB must provide recommendations, as well as logistics, equipment and customs processes.98 Further guidance on international assistance in outlined in Regulation 23 of 2008 including provisions outlining the procedures, implementation, supervision and reporting of international participation. Operational guidelines for international assistance are currently under development. Start Table Authority determining level of international assistance BNPB99 The type and level of assistance is informed by rapids needs assessments coordinated by the Incident Commander, and is informed by the MAC Coordinator100 Coordination point for incoming assistance: Authority for access to affected area: BNPB and BPBD Entry permits: Provided on the recommendation of BNPB On arrival report to: Department of Immigration Reporting for international responders: BNPB supervises international institutions in disaster management, and they must submit a report of their activities to BNPB periodically, at “the end of its term of service”, or at any time upon its request101 Clearance for international resource mobilisation: BNPB, Ministry of Defence, Ministry of Foreign Affairs, Armed Forces Headquarters End Table On-Site Operations and Coordination Centre Activation The OSOCC will be established by the UNDAC Team at the request of BNPB or the Resident Coordinator/Humanitarian Coordinator Location As part of MAC and preferably co-located with ASEAN’s JOCCA if established. Leadership UN OCHA Function Table Location Each military base, airport and seaport where there is an entry point for international assistance Established by BNPB in cooperation with government agencies at national, provincial and local levels Representatives National Disaster Management Agency (BNPB); Ministry of Defence; Ministry of Health; Ministry of Agriculture (Quarantine Division); Ministry of Law and Human Rights (Directorate General of Immigration); Ministry of Finance (Directorate General of Duties and Excises); Ministry of Foreign Affairs; The National Police of the Republic of Indonesia (POLRI); Ministry of Trade (Director General of Foreign Trade); Ministry of Transportation; National Intelligence Agency (BIN); Food and Drugs Surveillance Agency and; Local Governments/Local Agency for Disaster Management Functions Establish a registration centre for international agencies and foreign non-government organisations. Registration is done in coordination with the Indonesian National Military Force (TNI), National Police (POLRI) and the National Intelligence Agency (BIN) including exit processes for personnel and goods, issuance of ID cards and permits.
End Table Foreign Military Assistance (FMA) FMAs may either be requested or accepted by the Indonesian Government. The need for foreign military assistance will be communicated to the international community by the Ministry of Foreign Affairs and BNPB. In case FMAs are accepted, joint and combined operations/multi-national force (MNF) concepts shall be applied. The Armed Forces, at the GHQ level, in this case would establish the multi-national coordination centre (MNCC). Legal and policy frameworks are limited in scope for guidance on the use of foreign military assets and associated coordinating mechanisms and processes. According to the elucidation of article 38, Government Regulation 21/2008, it is necessary to obtain a particular license from the responsible agency/institution in the defence or security sector in order to receive ‘easy access’ facilities for military assets. BNPB Guideline 22/2010 also contains directions for states wanting to use military assets, which requires them to obtain security clearance from the National Armed Forces (Tentara Nasional Indonesia or TNI), and to write a request to MoD and TNI in coordination with BNPB to obtain MoD’s approval.103 Infographic Armed Forces GHQ Intelligence Foreign Aid Team are the point of contact for foreign military units planning relief operations. The role of the Armed Forces includes the following functions: facilitating and coordinating military assistance including coordination with BNPB and operations coordination units; designating military bases, airports, or seaports to be used as entry points for international assistance; establishing coordinating posts (joint secretariat) at the designated military bases, airports, and seaport; assisting in administrative matters for foreign military units; coordinating with Operations Coordinating Units about the capability and limitations of units to be projected into target areas and; accompany foreign military units in relief operations104 End infographic Table Submission of requests to provide assistance Member States bringing in military assets must submit written request to the Ministry of Defence. Request for assistance are processed in coordination with the National Army in coordination with the BNPB. The request letter must include a list of personnel, logistics or funds Contact point for foreign military units Armed Forces GHQ Intelligence Foreign Aid Team (correct term?) are the point of contact for foreign military units planning relief operations Coordination Coordination for foreign military assistance is undertaken by Armed Forces HQ Intelligence Staff through the respective country’s Military Attaché. During response operations, coordination is facilitated by Liaison Officers from the Army, Navy, and Air Force. Security clearance: The state providing military assistance must obtain security clearance issued by the Indonesian Military Forces Headquarters (Mabes TNI).105 Military assets: Equipment to be used by the assisting state, in the form of plane or ship, must have Security Clearance issued by the Indonesian Military Forces Headquarters (Mabes TNI) End table Humanitarian-Military Operational Coordination Concept (HuMOCC) An emerging practice in UN-CMCoord development globally, as well as in the Asia Pacific region, is the development of a platform to facilitate information sharing, task division and the coordination of operational planning between humanitarian and military actors, through the ‘Humanitarian-Military Operational Coordination Concept’ (HuMOCC) in natural disaster response. In Indonesia, BNPB and the Armed Forces support the adoption or integration of the concept in existing coordination mechanisms to enhance inter-operability between and among government and humanitarian actors; initiate dialogue and information sharing, especially between the military and civilian actors; and optimize and prioritize the use of military assets by civilian actors. (reference needed here)
In practice, the integration of the HuMOCC concept may be adapted to the existing Multi-Agency Centre (MAC) coordination mechanism. The MAC consists of the National Forward Coordination Centre, the Coordination Centre for Military Assistance lead by the Armed Forces (or Multi National Coordination Centre, MNCC), the OSOCC, as well as the AHA Centre. The MAC mechanism may also include a Joint Information Centre and a number of smaller working groups. Table Operational guidelines X Activation X Leadership X Headquarters Functions X The MAC provides support to the relevant military Area Commands managing the incident command post. Coordination with clusters X Coordination at provincial levels X Role of liaison officers X
The purpose of the MNCC is to provide common situational awareness between the Indonesian Armed Forces (TNI)and assisting foreign militaries, facilitate information sharing, and ensure the efficient use of military support locations, capabilities, and coordination. Insert table Leadership Indonesian Armed Forces Previous use X Headquarters X Activation X Co-location X Tasks X Coordination X Organisation and structure X Role of liaison officers (LNOs) X End table Start Text box A Civil-Military Technical Working Group (TWG CMCoord) has been established. Priority areas for the 2016 work plan for the Civil-Military Technical Working Group (TWG CMCoord) include developing clear protocols for the activation of a humanitarian-military coordination platform (i.e. Multi-Agency Coordination Centre (MAC)) as part of large-scale disaster response operation; clarifying liaison arrangements and task division between the humanitarian-military coordination platform (MAC), the national clusters and the Multinational Coordination Centre (MNCC). This work plan is linked to the RCG First Session outcomes for Indonesia.108 End Text Box Directory: system -> files -> documents -> files documents -> Interagency Committee on the Health Effects of Non-ionising Fields: Report to Ministers 2015 documents -> Final report documents -> Foreign Research Reactor West Coast Shipment Spent Nuclear Fuel Transportation Institutional Program External Lessons Learned September 18, 1998 frr snf west Coast Shipment Institutional Program Lesson Learned files -> Report: Shelter Support Mission to Afghanistan documents -> Guidance for Public Health Units about the core capacities required at New Zealand international airports under the International Health Regulations (2005) Purpose files -> Rapid Education Needs Assessment Report files -> H Report of a Workshop on Coordinating Regional Capacity Building on Gender Responsive Humanitarian Action in Asia-Pacific Download 494.21 Kb. Share with your friends:
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