Implementation of Disaster Mitigation Policy for Residential Fires in

the City of Banjarmasin

Decky Kuncoro

, Maulida

and Indrawati

Universitas Islam Kalimantan Muhammad Arsyad Al Banjari, Indonesia

Universitas 17 Agustus 1945 Jakarta, Indonesia

Keywords: Policy Implementation, Mitigation, Fire Disaster.

Abstract: The purpose of this research is to determine the implementation of mitigation policies in Banjarmasin and

identify the obstacles encountered in implementing fire disaster mitigation in Banjarmasin. The research

method used a qualitative approach with a descriptive research design. Data was collected through

interviews, observations, and documentation from four informants using George C. Edward's policy

implementation theory. Data analysis involved data reduction, data presentation, and conclusion. The

research findings indicate that implementing fire disaster mitigation policies in Banjarmasin has not been

entirely successful due to the incomplete dissemination of information to the community of Banjarmasin. As

a result, public awareness of fire prevention efforts is still low. Furthermore, implementing Regional

Regulation No. 15 of 2012 in Banjarmasin regarding Building Construction Permits is ineffective.

1 INTRODUCTION

According to Law Number 24 of 2007, Article 1, a

disaster is a series of events that threaten and disrupt

human life and livelihood. Natural factors, non-

natural factors, or human factors can cause disasters.

As a result, disasters can cause human casualties,

environmental damage, property loss, and

psychological impacts.

According to the definition contained in the law,

a disaster event can be a single event, such as a

specific natural phenomenon or a series of biological

events that occur almost simultaneously. An

example of one type of disaster is fire. A fire is an

event that cannot be predicted and occurs

unexpectedly at a particular place and time.

Various factors can cause fires. Natural factors,

such as lightning striking flammable materials,

earthquakes damaging fuel gas lines, or sunlight

reflecting onto dry leaves in the surroundings, can

contribute to fires. On the other hand, human factors,

like uncontrolled burning or acts of revenge, can

also be significant causes. Fires may also result from

negligence, such as forgetting to turn off stoves,

imperfect electrical installations, or exceeding the

safe load limit with electrical appliances. Lack of

awareness can also lead to fires, for instance,

smoking near fueling stations or discarding cigarette

butts indiscriminately.

Fires tend to occur more frequently in urban

areas than in rural ones. This is attributed to the

higher population growth in urban regions,

ultimately increasing the potential for fire incidents.

Banjarmasin comprises five districts: South

Banjarmasin, East Banjarmasin, West Banjarmasin,

Central Banjarmasin, and North Banjarmasin.

Covering an area of 98.46 km², Banjarmasin has a

population of 672,343 individuals with a population

density of 6,829 people/km². (Editor, 2022)

The Fire Department of Banjarmasin City, South

Kalimantan, has observed an increase in fire cases

every year. Data on fires that occur in Banjarmasin

continues to increase from year to year. In 2021, 97

fire cases were recorded in Banjarmasin, with the

northern and southern regions being the most

frequently reported. The number of cases increased

to 106 in 2022, and in 2023, there have been 11 fire

cases that caused one death. (Hamdani, 2023)

Since 2019, fires in Banjarmasin have claimed

many lives. The recorded fire casualties were 1544

people in 2019, 111 people in 2020, 510 people in

2021, and 581 people in 2022. In addition, the

calculation of economic losses due to fires also shows

a figure that reaches billions of rupiahs. This indicates

that efforts to prevent fire disasters must be improved

108

Kuncoro, D., Maulida, . and Indrawati, .

Implementation of Disaster Mitigation Policy for Residential Fires in the City of Banjarmasin.

DOI: 10.5220/0012641000003821

Paper published under CC license (CC BY-NC-ND 4.0)

In Proceedings of the 4th International Seminar and Call for Paper (ISCP UTA ’45 JAKARTA 2023), pages 108-113

ISBN: 978-989-758-691-0; ISSN: 2828-853X

to increase community awareness. (Hamdani, 2023)

The number of fire disasters that occur indicates

the need for serious attention to fire disasters.

Effective mitigation program planning is required to

prevent or minimize the potential impact of future

fire disasters. Disaster mitigation, as defined in

Article 1, paragraph 6 of Government Regulation

No. 21 of 2008, is a series of efforts to reduce disaster

risk through physical development, awareness, and

improvement of the ability to face disaster threats.

The main objective of mitigation is to reduce the

risk/impact of disasters, especially on the population,

such as casualties, financial losses, damage to natural

resources, and community knowledge in facing and

reducing disaster risks. This is so that people can live

and work safely and calmly.

2 RESEARCH METHODS

This research will use descriptive qualitative

research methods that involve data in the form of

words and images, not in the form of numbers. Data

is obtained through in-depth interviews to describe

the Fire Disaster Mitigation Policy implementation

in Banjarmasin City.

The data sources used consist of primary data

and secondary data. Preliminary data is obtained

through observations and interviews with informants

such as the Head of Service, Head of Section, and

the community/CPC representatives. Secondary data

is used as a complement and obtained indirectly

through various other media, such as books,

documents, previous research, articles, newspapers,

and other writings. Additional data on implementing

Fire Disaster Mitigation Policies in Banjarmasin

City was also taken from these sources.

The data collection techniques used in this

research include interviews, observation, and

documentation. Not understanding or not using data

collection techniques can result in researchers not

getting data that suits their research needs.

(Sugiyono, Metode Penelitian Administras, 2021)

3 DISCUSSION

3.1 Fire Disaster Mitigation Policy

Implementation Process

Based on the “policy implementation model”

according to George C. Edward in Widodo

(Widodo, 2010), The research focus of this study is

to see what factors are faced by the Banjarmasin

City Fire and Rescue Service in overcoming

disasters. 4 factors influence a policy, namely:

3.1.1 Communication

1) Transition dimension and good communication

channeling will also produce an exemplary

implementation. Based on the results of an

interview with the head of the Planning Section

and explained that:

“Communication of fire disaster management

carried out by the Fire and Rescue Service runs

well and is structured. Moreover, communication

about fire disaster mitigation in Banjarmasin is

carried out in ways such as socializing with the

community, educating on introducing fire fighting

too early childhood and delivering through

television broadcasts. Although this communica-

tion runs well, it still needs improvement.”.

2) The dimension of clarity: the communication

received by policy implementation must be clear

and not confusing or unambiguous. Based on the

results of an interview with the head of the

Planning Section and explained that:

"This socialization aims to broaden people's

knowledge of the dangers of fire, and we also

simulate how to handle fires and use fire

extinguishers APAR.”

3) The dimension of consistency, giving orders to

implement a communication must be consistent

and straightforward to run. Based on the results

of interviews with the head of the Planning

Section and explained that:

"The implementation of this program runs well

and is structured. We broadcast the program on

RRI television every Friday at 15.00."

In conclusion, the informants did not experience

any problems, although there are still shortcomings

in communication that need to be improved so that

fire management becomes more effective. The

purpose of this communication is so that both

implementers and field workers can carry out the

program properly according to what has been

determined. However, the socialization of mitigation

carried out by the Fire and Rescue Service has not

yet reached the community as a whole because the

informants interviewed never heard or knew of the

socialization: “I do not know that the DPKP

conducts socialization to the community and I also

do not know if there are other places where

socialization activities are held.”

Implementation of Disaster Mitigation Policy for Residential Fires in the City of Banjarmasin

109

The importance of conducting this socialization

is to ensure that the community has better awareness

and capability in dealing with disaster threats. In

addition, this socialization aims to reduce the

number of casualties and losses caused by fires.

However, based on the results of interviews with the

community, the DPKP still has not conducted a

comprehensive socialization of fire disaster

mitigation to the community.

3.1.2 Source

a. Human Resources

Based on the interview results, the Planning

Section's head explained, "Human resources are

the main capital in carrying out the duties and

functions of the Banjarmasin City Fire and

Rescue Service. Human resources in the Fire and

Rescue Service total 82 people, including 19

ASNs and 63 Fire and Rescue Personnel; for fire

and rescue personnel, we are divided into three

shifts; in 1 shift, there are around 20 people. For

training last year, we carried out twice for the

ANS and the handling personnel, including the

private BPK-BPK. We are involved in this

training, and the trainers we bring are directly

from Jakarta. We plan that this training will

continue”.

The results of an interview with the head of the

Banjarmasin City DPKP Secretary section also

support this statement:

“For the problem of direct training, we are

brought in from Jakarta, and training is not only

for employees in the Fire and Rescue Service but

for the private CPC we also participate.”

From the results of these interviews, researchers

concluded that the human resources in the

Banjarmasin City Fire and Rescue Service still

need to be improved, which requires staff with

the necessary skills and abilities to be adequate.

Regarding training for Banjarmasin City Fire and

Rescue Service employees, researchers see no

problems.

Table 1: List of ASN Employees Based on Education.

No Education Total

1. S2 3 Person

2. S1 8 Person

3. D3 1 Person

4. SLTA 7 Person

Total 19 Person

Sumber: Arsip DPKP Kotaa Banjarmasin

b. Budget Resources

Based on an interview with the Head of

Planning, he explained that:

“Our budget comes from the local government

budget (APBD) of Banjarmasin City, but our

budget is tiny, only 11 billion, and even that is

deducted from employee salaries”.

The results of an interview with the head of the

Banjarmasin City DPKP Secretary section also

support this statement:

“very minimal budget resources provided by the

Banjarmasin city government's APBD, employee

salaries alone are not to mention other needs.”

The budget allocation is used to support

operational activities by the main tasks and

functions of the Banjarmasin City Fire and

Rescue Service, as can be seen in the following

table:

Table 2: Realization of Regional Expenditure of the Fire

and Rescue Service of Banjarmasin City in 2022.

Description Budget

2022

Realization

2022

% increase/

decrease

operating

expenditure

7.711.534.

946,00

7.120.097.

636,00

92,33 100%

capital

enditure

3.150.009.

400,00

2.805.491.

200,00

89,06 100%

Total 10.861.544

.346,00

9.925.588.

836,00

91,36 100%

Sumber: Arsip DPKP Kota Banjarmasin

It can be said that with a realization of 92.33%

for Operating Expenditures and 89.06% for

Capital Expenditures, and the total realization of

budget use of 91.38% of the total budget

expenditure of the Banjarmasin City Fire and

Rescue Service is effective, efficient, and

remains effective in the use of budget allocations

in this fiscal year 2022.

The Banjarmasin City Fire and Rescue

Service received a direct expenditure budget

allocation of Rp.10,861,544,346, with details by

activity as follows:

1) Planning, Budgeting, and Performance

Evaluation of Regional Apparatus is

budgeted at Rp 2,167,800-.

2) The budget for the Financial Administration

of Regional Apparatus is Rp. 2,933,180,336,-.

3) Budget for Personnel Administration of

Regional Apparatus reached Rp 28,900,000,-.

4) General Administration of Regional

Apparatus budgeted at Rp 479,121000,-.

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5) Procurement of Regional Property to Support

Regional Government Affairs received a

budget of Rp 82,145,000.

6) Provision of supporting services for Local

Government Affairs obtained a budget of Rp

24,326,250-

7) Maintenance of Regional Property

Supporting Regional Government Affairs

gets a budget of Rp. 278,626,800,-.

8) The budget for Fire Prevention, Control,

Extinguishing, Rescue, and Handling of

Toxic Hazardous Materials within

Districts/Cities is Rp. 5,948,671,160.,-.

9) The budget for Fire Protection Equipment

Inspection reached Rp. 6,841,400,

10) Fire Incident Investigation received a budget

of Rp 3,999,900,-.

11) The Community Empowerment in Fire

Prevention budget is Rp 903,614,000.,-.

12) Organization of Search and Rescue

Operations for Human Endangerment is

budgeted at Rp 169,950,700.,-.

The budget that can be realized for organizing 26

(twenty-six) Sub-activities and 12 (twelve)

Activities in 2 programs is 91.38%, with the

details as follows:

From the interview results, the researcher

concludes that the budget provided by the

Regional Budget (APBD) is Rp 10,861,544,346.

Meanwhile, the Banjarmasin City Government's

APBD for the year 2022 is Rp 1.8 trillion. The

Banjarmasin City Fire Department receives 17%

of the city's budget from this budget. The

allocated budget significantly influences the

success of policy implementation, especially

when resources are limited, and the budget can

impact the success of policy implementation.

Therefore, the Banjarmasin City government

needs to reconsider its budget allocation.

c. Equipment Resources

Physical resources can also be a crucial element

in implementation. An executor may have an

adequate team, a clear understanding of their

tasks, and the authority to carry out the work.

However, without buildings, equipment,

supplies, and even the necessary green spaces,

the success of the implementation will not be

achieved. Based on the interview results with the

head of the Planning Department, it is explained

that:

“With facilities and infrastructure in the form of

office buildings that we occupy and the facilities

of 4 4-wheeled official vehicles, five 2-wheeled

official vehicles, office inventory items, and other

supporting office facilities. For the Technical

Implementation Unit, we have 2 Fire Fighting

Tank Cars, 2 Pick Up Cars, 2 3 two-wheel

vehicles (Tossa), Fire Pumping Machines, Fire

Fighting Floating Pumping Machines, Rubber

Boats, Personal Protective Equipment (PPE),

and other fire fighting and rescue equipment.

However, most of these facilities and

infrastructure are not functioning optimally and

exceed the economic life limit; the facilities and

infrastructure are also unfit for use and

damaged.”.

From these interviews, the researchers concluded

that the infrastructure system needs to be

improved continuously because it will make

providing services to the community more

accessible. Adequate facilities and infrastructure

will support the implementation of blackout and

rescue activities for the community.

d. Sumberdaya Kewenangan

Therefore, Edward III in Widodo (Widodo,

2010) states that the main policy actors must be

given sufficient authority to make their own

decisions to implement the policies under their

authority. Based on the results of an interview

with the head of the Planning Section and

explained that:

“The authority possessed by DPKP is related to

counseling the community, socialization of fire

disaster management, and lessons on how to use

fire extinguishers in the community; the issue of

fire is certainly a shared responsibility, including

the community.”

From the interview results, the researcher

concludes that the role of the Fire and Rescue

Department is a critical factor in addressing

existing fire disasters. Moreover, the direct

involvement of the Department and the

community in mitigating disasters is a definite

step towards finding solutions to the issues at

hand.

3.1.3 Disposition

The factors of concern to Edward III in Agustinus

(Agustinus, 2006) regarding disposition in policy

implementation consist of:

1) Bureaucratic appointments

Based on the results of the interview with the

Implementation of Disaster Mitigation Policy for Residential Fires in the City of Banjarmasin

111

head of the Planning Section and explained

that:

“Our recruitment system follows regulations

from the Ministry of Manpower. The Fire and

Rescue Service of Banjarmasin City also

carries out several activities that are

empowering and educational socialization to

the citizens of Banjarmasin City about fire

prevention and management, as well as data

collection of fire protection equipment in

buildings in the Banjarmasin City area.

Those who carry out the socialization

themselves are, of course, our party, which

directly controls and implements it in the

field; the policy maker is compiled by the

head of the department and his subordinates.

Therefore, all community members,

volunteers, and employees must participate in

disaster mitigation training programs to

improve their skills and abilities.”.

From the interview findings, the researcher

concludes that, so far, the bureaucratic

appointment system has been well-directed,

with adequate supervision coordination by

the Fire and Rescue Department of

Banjarmasin City.

2) Incentives

So, this is an effort to meet personal or

organizational needs. Based on the results of

the interview with the head of the Planning

Section and explained that:

“in that case, we only provide ASN salaries

and allowances; there are 21 ASNs who are

paid salaries and allowances. The total

salary of our employees is around Rp. 4

billion..”.

From these interviews, the researcher

concluded that there was no incentive

problem, only in the form of ASN Salary and

Allowance Provision. Based on data obtained

by researchers regarding salaries and

allowances for 21 ANS with a budget of Rp

2,933,180,336 and realized at Rp

2,647,219,946.

3.1.4 Bureaucratic Structure

The same applies to the extent of clear operating

standards related to mechanisms, systems, and

procedures for policy implementation, division of

primary tasks, functions and authorities, and

responsibilities among actors. In addition, the

disharmony of relationships between implementing

organizations and one another also affects the

success of policy implementation. Based on the

results of an interview with the head of the Planning

Section and explained that:

“Operational procedures for fire management,

rescue, and evacuation certainly exist. In carrying

out their duties, members must follow and comply

with the operational procedures that have been

implemented. The disaster volunteers in charge of

handling are thorough while serving and patient in

handling community complaints; there is also no

difference in service to the entire community.

However, the response time of 15 minutes from

receipt of information/reports to arrival at the

location of the Banjarmasin City Fire Department

only meets the target of 75%.

From the results of these interviews, the researchers

concluded that the Fire and Rescue Service is good

in terms of SOPs; it just needs to be improved

regarding response time.

3.1.5 Inhibiting and Supporting Factors for

Mitigation Policy Implementation in

Banjarmasin City

Several obstacles can be concluded from analyzing

the implementation of fire disaster mitigation

policies in Banjarmasin City. One is the lack of

comprehensive socialization from DPKP to the

people of Banjarmasin City, so public awareness of

fire prevention efforts is still low. In addition, the

absence of a post in each sub-district results in long

distances for firefighting and rescue members, so the

expected response time of 15 minutes is still not well

met.

In collecting data on fire protection infrastructure

in 2022, many buildings and structures in

Banjarmasin City are not equipped with fire

extinguishers such as fire extinguishers and

sprinklers. This causes difficulties in extinguishing

fires in the event of a fire, especially in tall buildings,

so that the fire can grow and the occupants of the

building find it challenging to get out.

The equipment and supplies owned by DPKP are

also still inadequate, both in quantity and quality, so

the services provided by firefighters to the

community are less than optimal. In addition, the

unavailability of a remarkable rescue car also delays

members going to the scene because they have to

spend time preparing rescue equipment that is not

yet available in less suitable cars, such as pick-ups.

Most facilities and infrastructure owned by the

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Banjarmasin City Fire and Rescue Service have

passed their economic age, so their function is less

than optimal. Many facilities and infrastructure are

not fit for use and are damaged, thus hampering the

implementation of services to the community.

On the other hand, there are supporting factors

for mitigation in Banjarmasin City, such as the

number of CPC/PMK organizations that assist in

extinguishing and rescuing in various areas. In

addition, the involvement of parties such as DPKP,

local government, and the PUPR Office also

supports mitigation efforts through socializing with

the community, making spatial plans, and granting

Building Permits (IMB).

In addition, handling fire and rescue complaints

from the public is well-served, and there is adequate

support from leaders and government agencies. The

availability of funds or budget in the APBD is also

essential in implementing the programs that have

been prepared.

4 CONCLUSION

It can be concluded that the implementation of Fire

Disaster Mitigation policies in Banjarmasin City has

not been entirely successful and is still less than

optimal. This can be seen from the communication

carried out through socialization to the community,

simulation of the use of fire extinguishers, and

education for early childhood. However, this

communication has not been thoroughly conveyed to

the people of Banjarmasin City. Resources are still

less than optimal because humans in DPKP still

need to be improved, budget resources obtained 17%

of the city budget, equipment resources in the form

of equipment and equipment owned are still

inadequate, and authority resources already have

their respective duties. Disposition is optimal, as

seen from the appointment and selection of DPKP

personnel by the recruitment system following the

Ministry of Finance regulations. And incentives in

the form of ASN Salary and Allowance Provision.

The Bureaucratic Structure is optimal, as seen from

the DPKP activities that have implemented the

applicable SOPs. The disaster volunteers in charge

of handling are thorough while serving and patient

in handling community complaints. However,

DPKP's response time only meets the target of 75%.

Mitigation policies in Banjarmasin City have

been implemented well. However, it is still not

optimal because several supporting and inhibiting

factors must be considered and become material for

future improvement.

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