Proceedings of 2017 International Conference of Asian-Pacific Planning Societies

045

Stakeholder Analysis to Evaluate the Role of Local Actors in Decentralized
Disaster Management in Indonesia
Danang Insita Putra* and Mihoko Matsuyuki**

Abstract
Nearly two decades ago Indonesia was revolutionizing the administration by decentralized
the public-sector policy with the primary goal was increasing the efficiency and bring government
closer to the people. Decentralization brought significant changes in the model of governance. In
disaster management, decentralization was essential to improve the role of local governments andcommunities to engage actively in disaster management. Decentralization of disaster management
is believed to enhance the effectiveness of the governance of disaster management to reduce theimpact of natural disasters. Some of the literature discussed on decentralization, and the impact
of disaster found that decentralization can significantly decrease the number of deaths caused bynatural disasters. The objective of this paper is to identify the roles of stakeholders in disastermanagement system at the local level and to identify the distribution’s pattern of the actors
representing the different sector. Empirical research in four cities in Indonesia was conducted toevaluate the role and importance of the actors in four stages of disasters (prevention and mitigation,
preparedness, response, and recovery). The data was analyzed using two level stakeholder
analysis (SA) method. Resulting from SA, their roles were identified, and their power andleadership were clarified.
Based on interviews and literature studies in four research areas, we can identified six sectorsof actors related to disaster management at the local level: government, civil society, community
organization, academia, donor agency, and the private sector. SA 1 showed that the allocation of
the actor in disaster management system in Indonesia is reflected fragmentation in each phase ofa disaster. Each phase has their pattern. SA 2 shows that the government sector still has strong
power and leadership in all stages of disaster management. The role of the non-government sector
is increase significant, especially in the response phase. The findings suggest that the strong power
and leadership actor need to increase the collaboration with the actors with low power and low
leadership to increase their role in disaster management at the local level. On the one hand, we
find that the role of local government has increased and can act as coordinator for disastermanagement.
Keywords: stakeholder analysis, disaster management, decentralization*Faculty of Urban Innovation, Yokohama National University, danang-putra-pd@ynu.jp** Insititute of Urban Innovation, Yokohama National University, mihoko@ynu.ac.jp

Proceedings of 2017 International Conference of Asian-Pacific Planning Societies

1. Introduction
In decentralization, the state distributes roles and responsibilities between the central
government and local government based on three aspects of decentralization: political,
administrative, and fiscal (Rumbach, 2015) (Faguet, 2014). Disaster management is one of theaffairs that is distributed. The role of local and sub-national governments in disaster management
differs from one country to another based on constitution and legislation (Bae, Joo, & Won, 2016).
In Indonesia, the role of local authorities in disaster management depends on two laws andregulations: Regional Autonomy Act and Disaster Management Act. As a disaster-prone country,
Indonesia urgently needs to distribute roles and responsibilities of each level of government inthree stages of disaster: pre-disaster, emergency response, and recovery. In the pre-disaster stage,
government must prepare the community to reduce the impact of disasters through prevention,
preparedness, and mitigation. Response phase, take quick action for evacuation, rescue, and basic
needs fulfillment. Post-disaster phase, conducting rehabilitation and reconstruction activities forthe recovery of infrastructure and rebuilding the community's economy. In Indonesia, the central
and local governments are responsible for every phase of disaster management. The latest
amendment of the Regional Autonomy Act provides specificity to disaster management affairs.
Disaster management affair is grouped into local government affairs that are classified as essential
and mandatory. The local government is obliged to provide adequate public services for the people.
Decentralization brought significant changes in the model of governance in Indonesia. In
disaster management, decentralization was essential to improve the role of local governments andcommunities to engage actively in disaster management (Ainuddin, Aldrich, Routray, Ainuddin,& Achkazai, 2013). By the global paradigm change, disaster management is not only an exclusive
affair of the government but became "everybody business" involving not only all levels ofgovernment but also the community and private sectors (Al-Nammari & Alzaghal, 2015). In
Indonesia, the implementation of disaster management with the concept of decentralization isbased on the motivation to create a disaster management with principles of transparency,
coordination, partnership, efficiency, and empowerment. Post-decentralized disaster management
also shifts the focus of disaster management from initially focusing on emergency response torisk management (prevention, mitigation. And preparedness phase). Predicting possible natural
disasters and taking action to minimize or (if possible) eliminate the risks posed by natural
disasters (BNPB, 2010).
The objective of this paper is to identify the roles of stakeholders in disaster management
system at the local level and to identify the distribution’s pattern of the actors representing
different sector (government, civil society, academia, community, donor agency, and private
sector). Questions are: who plays a role? Which sector is more dominant? Who has high power
and leadership? Such questions have been addressed for stakeholder analysis (SA). Several kindsof literature highlighted how a study on stakeholders is essential for disaster management. In thispaper, we try to demonstrate SA to analyze the power and leadership in disaster management at
the local level. Specifically, we will conduct two levels SA to (1) identify the stakeholder andtheir roles in each stage of disaster and (2) assess the stakeholder’s leadership and power to clarify
the map of the stakeholders.

Proceedings of 2017 International Conference of Asian-Pacific Planning Societies

2. Literature review
Disasters occurring locally and effective disaster management systems are essential tomitigating the impact of disasters (Garschagen, 2016). The implementation of disastermanagement can be more effective if each actor understands their role and capacities in every
stage of disaster (Erland Danny Darmawan Spv, Schulte Nordholt, Hospers, & Darmawan, 2008).
The local government as the primary responsibility for disaster management must understand thecharacteristics of each actor. In the implementation of disaster management, local governments
cannot act and make their decisions. But the position of the local government is in a unique andstrategic position, as it becomes the liaison between higher-level (state and provincial)governments with communities to serve. Local governments should also be able to build systems
that fit the characteristics of the region. The system should involve governments, NGOs,
communities, and the private sector (Wilkinson, 2012).
Disaster is the result of the emergence of extraordinary events (hazards) in vulnerable
communities so that people cannot overcome the implications of these extraordinary events(Lindell, 2013). Disaster management primarily seeks to prevent people from disasters by
reducing the likelihood of hazards or overcoming vulnerabilities (Tarhan, Aydin, & Tecim, 2016).
Disaster management cycle consists of two major activities. The first is the disaster (pre-event)and secondly is after the disaster (post event). In this study, we used a four-stage disaster approach:prevention-mitigation and preparedness for pre-event phase; response and recovery for post-event
period (see Table. 1).
In building a good disaster management system requires strong commitment and leadership(Rivera, Tehler, & Wamsler, 2015) (Rautela, 2015) (UNISDR, 2009). In some cases, disastermanagement systems are robust to implement due to lack of strong leadership factors. Particularly
in an emergency, leadership is crucial. In times of emergency, every decision should be taken
quickly and appropriately to reduce casualties. In disaster management, the biggest challenge isto bring institutions from different backgrounds and different interests to work together in one
system (CRED, 2015). The sectoral approach in the governance system was found to be barriersin bringing institutions together as one (Corlew, Keener, Finucane, Brewington, & Nunn-Crichton,2015). Some research addresses the complexity of stakeholder leadership and power in disastergovernance.
Table. 1: List of activities in every phase of disaster
Prevention andmitigation
Establish objectives

Preparedness

Response

RecoveryEmergency access andevacuation
Risk assessment
Emergency drill
Risk prevention and Emergency response
mitigationequipment
Source: Mojtahedi & Oo (2017)

Rescue and relief

Detailed damage assessment

Damage assessment
Protection of theheritage

Treatments
Recovery and rehabilitation

The empirical finding by Newnham et al.(2007) show that the government's role has shiftedto disaster management. The government should provide a more portion to the people to be able
to manage its environment. Decentralization also gives communities greater opportunities toexpress their opinions. The ideal role of local government is to increase the capacity and3. Research methods
3.1 Case study
Our study was conducted in four municipalities: Semarang City, Cilacap Regency, Banyumas
Regency, and Purworejo Regency. All municipalities located in Central Java Province ofIndonesia (see Fig. 1). Central Java Province is one of the most populous provinces in Indonesia.
Located in the middle of Java Island – the most populated island in Indonesia and categorized as
the third most at risk province in Indonesia. The selection of these sites is based on two importantcriteria: First, the study location has a high risk based on the disaster risk index issued by the
National Disaster Management Agency (BNPB). Second, the location has the same main natural
hazard characteristics (see Table 2). Both criteria are important to be able to conduct comparative
studies between study sites.

Fig. 1: Location of study

Proceedings of 2017 International Conference of Asian-Pacific Planning Societies

knowledge of the community in disaster management. More educated communities will also
parallel the government to be more open and transparent in every policy taken. In disastermanagement, the participation of various actors is proven to support disaster planning andimplementation. With good collaboration expected will reduce the burden of government
especially from the financial side. Also, by encouraging the function of other actors, especiallythe community will be able to build community resilience (Djalante et al., 2012).

Proceedings of 2017 International Conference of Asian-Pacific Planning Societies

Table 2: The characteristic of the municipalities
Characteristics

Semarang City

Cilacap Regency

Covers area (km2)
Population(people)Potential natural
hazards

373.782.137.801
Flood, landslide,earthquake,
residential fireHigh

Disaster risk
index

2,124
2.137.801

Banyumas
Regency
1,335
1,554,527

Purworejo
Regency
1,834
828,947

earthquake,tsunami, flood

flood, landslide,volcanic eruption

landslide, flood

High

High

High

3.2 Data collection
A literature survey on the actor on disaster management was performed. To categorize theactor using Disaster Management National Plan issued by BNPB and Local Institution
Government Plan published by Ministry of Home Affair (MOHA). The result, three groups for
local government, were selected as respondents of this study: agency related to disastermanagement, an organization associated with government’s administration, and other sectoral
institution. Next, to identify the constituents of each group, a literature review on Disaster
Management Act was conducted, and an initial list of 24 actors in each city was selected. Next,
the snowballing methods were adopted to expanding the respondent from the non-governmentorganization: academia, civil society, community, donor agency, and the private sector.
In the end, we interviewed 90 actors: 35 actors from Semarang City, 28 actors from Cilacap
Regency, 15 actors from Purworejo Regency, and 12 actors from Banyumas Regency (seeTable.3). We used semi-structured interview followed guidelines with the several importantquestions: 1). What is your institution’s role in every stage of disaster? 2). Who is influential andaffected by the policy? (Stakeholder analysis part 1). The next questions are 1). How do you assess
the power and 2).How you value the leadership of related organizations in disaster management?
(Stakeholder analysis part 2). Most of the questions used the Likert scale with three points ofchoice and often the respondent is asked why they chose that point.
3.3 Data analysis
Stakeholders in a system can be identified in various approaches. SA is an analysis that does
not have a standard form, thus giving researchers the freedom to choose the analytical tool used
to categorize stakeholders. One typology used is to analyze the characteristics and roles of
stakeholders with five Likert-scale points (Dos Muchangos et al., 2017). In this analysis, theauthor tries to analyze stakeholders based on the information, knowledge, and satisfaction of eachstakeholder in the implementation of the disaster management policy at the local level. Anotherstudy on SA focuses on four sectoral analyses in a water infrastructure process using a ten-point
Likert scale (Lienert, Schnetzer, & Ingold, 2013).
A stakeholder can be identified as people, or groups, or institutions that are likely to beaffected by a program or policy activity, whether positive or negative or vice versa that may havean impact on the outcome of the program/policy (Lin, Ho, & Shen, 2017). Stakeholder analysis(SA) is a systematic process to collect and analyze qualitative data to explain the role andimportance of each actor in the implementation of a system or policy (Schmeer, 2000). Some

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stages in the SA include explaining phenomena influenced by a policy/decision, identifying
affected actors/institutions, then mapping stakeholders to see the level of importance and role inpolicy making (Dos Muchangos, Tokai, & Hanashima, 2017). Stakeholder analysis is an
important instrument for understanding the social and institutional context of a program/policy
activity. The things revealed from this tool can provide information about: (1) anyone who will
be influenced by programs / policies either positive or negative (Mok, Shen, Yang, & Li, 2017);(2) anyone who may have a positive or negative impact on the program/project (Reed et al., 2009);(3) What individuals, groups, and institutions need to be involved in the program/policy and how;
And who needs to build capacity to participate actively in it (Bryson, 2004).
To analyze stakeholders, we asked respondents to: 1.) mention all actors relating to disastermanagement at the local level; 2.) explains the position of each actor in the disaster prevention
activities using binary scale types 0 and 1 (0: "the actor has no role in the activity"; 1: "the actor
has a role in the activity"). They are also asked about the level of stakeholder interest based on
the ability of each stakeholder to impact on disaster management policies. Each respondent points
to the "power" and "leadership" factor of each stakeholder based on a three-point Likert scale (1:"actor has power or leadership"; 2: "actor has moderate power or leadership"; and 3: "actor has
high power or leadership. ").
Next, the diagram built to represent the distribution of power and leadership in four locationof the study as the outputs of SA. This study analyzed the stakeholder importance based on power
and leadership aspects in four phase of disaster (prevention and mitigation, preparedness,
response, and recovery). Referring to Schmeer (2000), the level of importance of stakeholders is
a description of the ability of each actor to influence the system or policy. To determine the levelof interest that has a positive/negative impact on a policy, the characteristics of each actor are
determined by the power and leadership factor. This study will divide actors into four categories:
Group 1, actors with high leadership and high power; Group 2, actors with high leadership andmedium/low power; Group 3, players with low/medium leadership but has high/medium power;
Group 4, those actors with low/medium leadership and low/medium power. The diagram of theanalysis shown in the following figure (Fig.2):

Proceedings of 2017 International Conference of Asian-Pacific Planning Societies

Table 3: Actors playing a role in disaster management.
SectorSemarang City

Cilacap Regency

Government

BPBD,

Bappeda,Legal

Bureau,BPBD,

Financial

Bureau,PublicBappeda,Legal

Banyumas Regency

Purworejo Regency

Bureau,

BPBD, Bappeda, Legal Bureau,

BPBD, Bappeda, Legal Bureau,

works,

Financial Bureau, Public works,

Financial Bureau, Public works,

Financial Bureau, Public works,

Social affairs, Fire management,

Social affairs, Fire management,

Social affairs, Fire management,

Social affairs, Fire management,

Satpol PP, Water management, Energy

SatpolSatpol PP, Energy and mineral

Satpol PP, Energy and mineraland mineral agency, Kesbanglinmas,

Energyagency,agency, Kesbanglinmas, Kecamatan,

agency,Inspektorat,

Kesbanglinmas,

Inspektorat,

Kecamatan,

Kelurahan,

PP,

Water

and

management,

mineralKesbanglinmas,

Desa, Health agency, Education

Kecamatan, Desa, Health agency,

DKP, BLH, PSDA, Education agency,

Kecamatan, Kelurahan, DKP, BLH,

agency,Education

BMKG, BPMPKB, Transportation

PSDA, Education agency, BMKG,

agency, Bina Marga, Cipta Karya,

Transportation agency, Bina Marga,

agency, Bina Marga, Cipta Karya, BPN,

BPMPKB,

Puskesmas, RSUD Ajibarang, RSUD

Cipta

BPSDA , Agricultural agency, PDAM,

Bina Marga, Cipta Karya, BPN,

Banyumas,

Agricultural

RSUD, SEKDA, DPRD, Sekretariat

BPSDA, Agricultural agency, PDAM,DPRD,

DPRD, BASARNAS, KODIM, Police

RSUD, SEKDA, DPRD, Sekretariat

KODIM, Police, Perhutani

PolicePramuka, PMI, Bintari, Kalandara,

Pramuka, PMI, Seroja, Tagana

Pramuka, PMI, ACT, Ampel, Tagana

Pramuka, PMI, Kompak, Tagana-

ONSOED-

Kampung siaga bencana

Karang taruna, Kelompok siaga

Transportation

agency,BMKG,

Transportation

Agricultural

SEKDA,

agency,BASARNAS,

agency,Karya,
agency,BMKG,
Puskesmas,
RSUD,

SEKDA, BASARNAS, KODIM,

DPRD, BASARNAS, KODIM, Police
Civil society

P5, Tagana
Academia

Diponegoro

University,

USM,

UNISULLA, UNNES, POLINES
Community

PKK, Karang taruna, Kelompok siaga

Karang taruna, Kelompok siagaorganization

bencana, Dasa wisma, Posyandu

bencana, Dasa wisma, Mosque

Donor agency

Mercy corps, Rockerfeller

UNDP

-

-

Private sector

Djarum, Phapros, Guna bina kimia,

Pertamina, Pelindo, BRI, Holcim

Semen Bima, Telkom, Holcim

BCA, Pertamina, Taspen, Sinar mas

Viva generic, Sido muncul

Note: Written with a bold font indicates that the actor is being interviewed

bencana, Desa siaga bencana

4. Results and discussion
4.1 Identification group of stakeholders and their role
Based on interviews and literature studies in four research areas, can be identified six sectorsof actors related to disaster management at the local level: government, civil society, community
organization, academia, donor agency, and private sector (see Table 4). The number of each
institution varies from one municipality to the other. But in general, each group has arepresentative in each study location. The government is the main responsibility of disastermanagement. The government has a role to plan and implement disaster management activities.
Also, the government is also obliged to allocate sufficient funds for activities in the four stages ofthe disaster. Regional Disaster Management Agency (BPBD), Regional Development Planning
Agency (BAPPEDA), and Financial Bureau are the three leading institutions with responsibilities
concerning disaster management planning and financing at the local level.
The other important actor is a civil society. Civil society is mainly composed of non-profit
and non-government organizations and volunteer organizations in disaster management. Some
organizations mentioned in the interviews are: Justice Enforcement Command (KOMPAK),
Institute for Women and Children Empowerment Edge (SEROJA), Quick Response Action(ACT), Caring Community Alliance (AMPEL), Sustainable Works Development (BINTARI),
Social and Humanity Foundation (KALANDARA), and Public Service Delivery Center (P5).
Most civil society institutions work with the government to build community resilience. Someagencies also receive funding support from donor agencies as their primary source of funding.
Educational institutions are also actively involved in disaster management activities. Somelocal universities are partners for the local government in conducting research and academic
manuscripts of disaster management technical regulations. Some universities are also active inProceedings of 2017 International Conference of Asian-Pacific Planning Societies

Fig. 2: Mapping of the stakeholder based on power and leadership (Schmeer, 2000)

Proceedings of 2017 International Conference of Asian-Pacific Planning Societies

the process of community empowerment and mitigation through the Community Development
Program (KKN). Post-decentralization, the Disaster Management Act provides opportunities for
a community organization to be directly involved in disaster management. The Disaster Risk
Reduction Forum (Forum-PRB), for example, is a regional-based community organization thatserves as a disaster management forum for coordination through consultative and participatory
processes. This forum presents an opportunity for the citizen to be actively involved in disastermanagement’s activities.
Table 4: Group of actors and their roleNo
1.

SectorGovernment

2.

Civil society

3.

Academia

4.
5.

Communityorganization
Donor agency

6.

Private sector

Role- Responsible for planning and implementing the policy on disastermanagement- Allocating enough budget, personnel, and other resources- Bridging the gaps between government and the people- Empowering the community- Supporting the government in research and developing tools for disastermanagement- Participate in preparing a disaster risk analysis- Work with the government in developing mitigation plans- Supporting funding and human resources in developing regulations and othertechnical rules.
- Supporting the government's role in disaster management in its area ofexpertise

In the last decade, the role of donor agencies is critical in building disaster management
system at national and local level. United Nation Development Planning (UNDP), for example,
with the Safer Community through Disaster Risk Reduction (SCDRR) program simultaneously
implemented programs to develop regulatory frameworks, databases, and community
empowerment at the national and local level. Several other donor agencies are also involved inclimate change adaptation and mitigation at the local level. Since 2009, Mercy Corps andRockefeller Foundation developed Semarang City becoming one of the 100 resilient city networks.
The private sector also becomes an active agency involved post-decentralization. Disasters are nolonger seen as business as usual; community resilience is key to economic resilience (UNISDR,2015). With an active role in disaster management, the private sector can build ties with thecommunity as part of achieving the target of national resilience.
4.2 Stakeholder analysis part 1: mapping of stakeholder’s role
Based analysis on stakeholder’s role in disaster management, the characteristics of
stakeholder mapping in the location of study can be divided into three groups. Group 1, is themunicipality with stakeholder features that focus on preparedness and response activities. The
municipalities that belong to this group is Semarang City and Purworejo Regency. Group 2, is themunicipality with stakeholder characteristics that focus on response and recovery. The
municipality that belongs to this group is Banyumas Regency. Group 3, is the municipality withstakeholder characteristics that focus on prevention and mitigation, preparedness, and recovery
phase. The city that goes into this criterion is Cilacap Regency.
In this study, we map stakeholders based on their role in any disaster management activities.
The purpose of this analysis is to identify the distribution of stakeholders in each disastermanagement activity (see Table 1). Each of the disaster stages has three activities, so there is a

4.3 Stakeholder analysis part 2: power versus leadership
One commonly used method of stakeholder analysis is to identify the internal and external
the organization that have the influence of power and leadership on the system. The moreunpredictable (behavior, interests, habits, strengths, and weaknesses), and the stronger the powerof the stakeholders, the stronger the bargaining position and the bargaining power. Facing suchconditions, organizations are the greatest threat, or possibly opportunity, depending on thestrengths and weaknesses of the organization. Conversely, the more likely and weak the power ofstakeholders, the organization faces relatively few problems. For this analysis total of 179
stakeholders from four municipalities were mentioned as playing a role in local disastermanagement (see Table.3). The calculation of scores uses the average rating given by respondents
who have alliances with the institution.

Proceedings of 2017 International Conference of Asian-Pacific Planning Societies

total of 12 activities to be mapped in this analysis (see Fig.3).
Several factors cause different characteristics of maps of stakeholder between one
municipality with others. First, local government development priorities factor. Based oninterviews with respondents, it is known that disaster management affairs are not always
becoming a priority in regional development. In a municipality with major disaster experiencessuch as Cilacap Regency with experienced in earthquake and tsunami (2006), disaster risk
reduction (DRR) continues to be pushed into development priorities with sufficient budget
allocation commitments in local funds. Second, the existence of actor who plays a role in theformulation of objective and plans in disaster management. This role should be the task of BPBD.
But the problem is that not all BPBDs have the capacity to become leaders in other institutions,both government, and non-government organizations. In a case study in Semarang City andPurworejo Regency, this role was taken by BAPPEDA. However, it is not optimal because theprimary function of BAPPEDA was focused on development planning, rather than explicitly
planning the objectives of disaster management. Third, the role of government to encourage nongovernmental organizations is involved in every stage of the disaster. It should be admitted that
local government resources are insufficient in handling all disaster management activities.
Therefore, the local government needs a strategy to engage non-governmental organizations to
support the government to achieve its objectives.

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Fig. 3: Mapping of the stakeholder on disaster management activities
Stakeholder mapping based on an assessment of the significance of stakeholder importanceto the disaster management system in the prevention phase can be categorized into four groups asshown in the Fig.4. From the figure, all stakeholder in the first group is occupied by actors fromgovernment group. No actors were identified from civil society, academia, community, donor
agency, and the private sector. In Indonesia’s disaster management system, the government has a
responsibility in determining the policy from the planning to the implementation. In the second
group, the role of non-government actors began to emerge, especially from the community sector.
The Disaster Management Act opens opportunities for communities to participate in theprevention and mitigation stage through disaster forums. This forum opens a dialogue between
non-government governments in formulating disaster management plans annually. All regions
have built this forum, but its effectiveness is different from one municipality to another. In Cilacap
Regency, the role of private sector is prominent in this phase. Although most do not have highleadership, the local government opens opportunities for the private sector to "invest" in disasterrisk reduction. The advantage of the location Cilacap Regency as a port city that has many big
companies becomes a strength for local government to be able to involve the private sector in
DRR activity.

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Fig. 4: Mapping of the stakeholder on prevention and mitigation phase
In the preparedness phase, groups with high leadership and power are still dominated byactors from the government sector (see Fig.5). Interestingly in Semarang City, Group 1 also
involves actors from civil society who have tremendous leadership and power. Actors who are
directly involved so have power and leadership as equal as internal stakeholders become part ofthe crowd (dos Muchangos, Tokai, & Hanashima, 2017). In this phase stakeholders of civil society
in Semarang City, for example, had long experience in disaster preparedness. Their role is crucial

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in the policy-making process. In this phase, the spread of the actor on each group becomes moreheterogeneous. One of the underlying aspects is in this phase the government opens wider
opportunities for other actors to be involved in the decision-making process. In contrast to theprevention and mitigation phases that can be planned gradually, this phase requires a relatively
large resource in a short time. So, the contribution of external resources from other stakeholders
is needed.

Fig. 5: Mapping of the stakeholder on preparedness phaseProceedings of 2017 International Conference of Asian-Pacific Planning Societies

Fig. 6: Mapping of the stakeholder on response phase
In the response phase, almost all stakeholders will give all their resources to reduce theimpact of disasters. Group 3, those who have low leadership but high or medium power become
very heterogeneous groups (see Fig.6). This group consists of many government agencies, theprivate sector, and civil society. In a heterogeneous group like this often some actors work
independently without waiting for command or coordination from key stakeholders. Becausesome actors, especially from the private sector and civil society who get support from donor

Proceedings of 2017 International Conference of Asian-Pacific Planning Societies

agency have strong resources to be able to perform their role. Non-governmental organizations
tend to move quickly in the emergency response phase. The condition happens because aid fromthe government is considered slow while people need help as soon as possible. The impact often
occurs overlap in the implementation of the role between stakeholders. Therefore, building aneffective communication network is one way to strengthen the system, and each actor can perform
its function without any overlap.

Fig. 7: Mapping of the stakeholder on recovery phase

Conclusion
The disaster management system requires integrated and sustainable cooperation between
actors. Each actor must have an active role from the planning stage to implementation. Disastermanagement in Indonesia post-decentralization creates opportunities for government and nongovernment actors to be involved in the decision-making process. Decentralized disastermanagement has an approach for all actors to take on the role and benefit from the process. In thisstudy, we used SA to get a figure of stakeholder distribution at disaster management system inIndonesia. In SA (part 1), we analyze stakeholder distribution based on their role in every activity
in four phases of a disaster. The result of this analysis we can understand how the policy priorityof disaster management in each research location. Then in SA (part 2), we analyze based on"power" and "leadership" to understand the distribution of stakeholders based on their importancelevel.
In this study, we can conclude some findings of stakeholder analysis to know the role ofstakeholders in the disaster management system at the local level:(1) There are actors amounted to 179 actors in the four cities (57 actors, Semarang City; 36 actors,
Purworejo Regency; 48 actors, Cilacap Regency; and 39 actors, Banyumas Regency). Actors
are grouped into six sectors: government, civil society, academia, community, donor agency,
and the private sector.
(2) SA 1 showed that the allocation of the actor in disaster management system in Indonesia isreflected fragmentation in each phase of a disaster. Each phase has their pattern. Based on theanalysis, the study area can be divided into three different patterns: municipality focusing on
preparedness and response activity; municipality focusing on response and recovery; andmunicipality focusing on prevention and mitigation, preparedness and response activity. This
characteristic is not a general description of the disaster management system at the local level
because every municipality must have different priorities and features in disaster management.
From this pattern, it is also found that local governments still prioritize post-disaster activities(response and recovery) rather than prevention-mitigation and preparedness activities.
Though the disaster governance has shifted from disaster response to disaster risk
management, most of the local government still prioritize the post-disaster activities as theprimary disaster governance.

Proceedings of 2017 International Conference of Asian-Pacific Planning Societies

Effective resource allocation is needed to accelerate the post-disaster recovery process. Eachof the actors - government and non-governmental institutions have their respective portions. The
government has the authority to coordinate the post-disaster recovery process. In a large-scaledisaster, the Government will issue regulations to oversee multi-year recovery activities. The
regulation also serves as a legal umbrella to open opportunities for non-governmentalorganizations and donor agencies to support in coordination with the government.
In the first group, most the actor is re-filled by the actor from the government. Nongovernment institutions do not have many roles in the recovery phase because this phase has
become the obligation and authority of the government (see Fig.7). But it does not rule out if the
non-government agencies to assist the government in the implementation of the recovery phase,of course with the mechanism and fund channeling that has been agreed. The third group is themost heterogeneous group compared to the other groups. In this group, the role of government isalso supported by other non-government actors: private sector, civil society, community, andacademia.

Proceedings of 2017 International Conference of Asian-Pacific Planning Societies(3) Furthermore, SA 2 shows that the government sector still has strong power and leadership in
all stages of disaster management. The role of the non-government sector is also significant,especially in the response phase. The role of non-governmental actors in response phase’s
activities is crucial to fill the gaps left by the government, especially in the event of a majordisaster. However, SA also demonstrated a significant impact in the role of non-government
actors, especially from civil society and private sector, to take a strategic role in the system.
This role is supported by the adequate resources of each actor so that with high power impact
has an impact in the decision-making process.
From SA analysis allowed to give a general description of disaster management system at
local level. On the one hand, we find that the role of local government has increased and can act
as coordinator for disaster management. From the SA analysis above, we can see that thecommunity still has the low power and leadership in the implementation of disaster management.
The role of the community still cannot be fully accommodated in the system. The findings suggestthat cooperation is required and continuous empowerment of actors who have strong power andhigh leadership to achieve common goals. Local governments also need to open more
opportunities to non-governmental organizations to participate in any disaster management
activities.
In the context of public services, disaster management for municipal with Regency
characteristic should also be different from the city. The wider covered area become the factorsthat distinguish the two types of the municipality. Due to the larger area, Regency requires
different concepts of disaster management to enable all communities to be well served. One
solution is to delegate some of the authority of disaster management to the lower level of thegovernment, such as “kecamatan” (district) and “desa” (village). By delegating some of thesepowers can have two significant impacts: 1.) increasing the range of services to the communityand 2.) strengthening the role of kecamatan / desa in the DM system.
Although the SA proved useful to analyze the distribution of the actors in the disastermanagement system, especially in Indonesia. But there are still some points that become
limitations in the study. First, although this research is considered to have enough respondents
from each study site, the difficulty of conducting interviews with the principal respondents is
becoming a challenge. For a broader analysis, the survey method needs to be done by combining
several methods such as semi-structured interview, questionnaire survey, focus group discussion,and public hearing, expected to understand the role of each actor in the system. Second, thelocation selected for this study are only municipalities which include high risk based on Disaster
Risk Index (BNPB, 2013). Furthermore, for the future research SA should be analyzed for amunicipality that has medium and low disaster risk to know the differences characteristic andpattern of the stakeholder.
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