City Profiles Jakarta, Indonesia Climate Resilient Cities 47803 A Primer on Reducing Vulnerabilities to Disasters I/ IntroductIon Jakarta is the capital of the Republic of Indonesia and is the largest city in the country, with a population of over 15 million.1 Jakarta is an equatorial metropolis located in the southern hemisphere on the island of Java. The total area of the Jakarta metropolitan region is about 7,700 square kilometers, while the city has an area of approximately 660 square kilometers.2 Jakarta has a special status in Indonesia and has its own provincial government, head- ed by the Governor. The city is divided into five administrative units, each with a local government headed by the mayor.3 The main responsibilities related to planning are vested with the provincial government, as is disaster management. Jakarta has moderate risk of earthquakes due to the distance from the most active interplate boundaries. The city has a much higher risk of flood disasters because more than 40 percent of the city is situated below sea level. Another source of flood haz- ard is due to the 13 rivers that pass through the province, out of which three rivers are inter-provincial and are controlled by the central government. Different low-lying The city has a much parts of the city experience flooding on an annual basis resulting in disruption of local economic and social activities. The flooding is due to the accumulation of rainwater higher risk of flood as well as to incursion of seawater, since the seawall protecting the low-lying areas has been breached at some locations. disasters because more than Jakarta is experiencing very rapid growth, and rapid development is taking place on 40 percent of the city is the alluvial coastal plains. Several parts of the coastal plains are experiencing subsid- ence of around two to three centimeters every year. situated below sea level. Several parts of the coastal II/ dIsaster ManageMent strategy plains are experiencing Indonesia is highly vulnerable to different natural disasters. The country is located along major subduction zones and frequently experiences devastating earthquakes and vol- subsidence of around canic eruptions. The country also experiences several hydro-meteorological disasters at regular intervals. Due to the concentration of population in Jakarta, as well as its politi- two to three centimeters cal and economic significance, disasters in Jakarta have very high impact on the affected people, as well as the country as a whole. Following the 2004 Indian Ocean tsunami, the every year. Global Facility for Disaster Reduction and Recovery City Profiles disaster management system in the country was revised, ments. The national government responsibilities include: and disaster prevention has been accorded high priority. The revised Disaster Management Law emphasizes the n Prescribing disaster management policies in con- integration of disaster management planning with devel- formity with the national development policies. opment policies to ensure that the resilience of the country n Designing development plans that incorporate is improved. the elements of disaster management policies. n Deciding the status and level of a disaster, either national or local. n Formulating policies on the use of technology, The revised Disaster Management Law which may pose potential threats or hazards. n Formulating policies on the prevention of deple- emphasizes the integration of disaster tion of natural resources for recovery. and n Controlling national-scale mobilization and dis- management planning with development tribution of cash and materials. policies to ensure that the resilience of The provincial or regional government that implements the revised law has the following responsibilities: the country is improved. n Guaranteeing exercise of the rights of the disaster- affected and internally displaced persons in accor- The revised Disaster Management Law was enacted in dance with the minimum standards of service. 2007 (Law of the Republic of Indonesia Number 24 of the n Protecting the public from disaster impacts. Year 2007). The revised law covers natural as well as non- n Mitigating disaster risks and incorporating such natural or human factors that result in human casualties, risk mitigation in development programs. environmental damage, loss of property, and psychologi- n Earmarkingsufficientfundingfordisastermanage- cal impact. The country's objectives of disaster manage- ment in the regional revenue and expenditure. ment, as per the revised law, comprise the following: Regional governments are expected to take the lead in en- n Provide protection to the public from potential suring that a suitable response system for different disasters disaster. is created. The regional governments are also responsible n Conform with the current regulations having the for ensuring that all regional plans incorporate risk miti- force of law. gation in the development plan. Since climate change is n Guarantee organization of planned, integrated, leading to environmental degradation, the revised Disas- coordinated, and comprehensive disaster man- ter Management Law also enables regional governments agement. to respond to and plan various mitigation and adaptation n Show respect to the local culture. strategies to climate change. n Set up participation and partnership of the public as well as the private parties. The Disaster Management Law recognizes that disaster n Encourage the spirit of mutual assistance, solidar- management constitutes one of the elements of national ity, and charity. development, taking the form of disaster management ac- n Create peace in community life, nationhood, and tivities before, during, and after a disaster occurrence. In statehood. the past there was no special law concerning disaster man- agement by which to adjudicate. The revised law provides The Disaster Management Law has prescribed the re- a legal basis for the operation of disaster management and sponsibilities of the national, regional, and local govern- regulates activities in stages of disasters: (a) pre-disaster 2 Jakarta, Indonesia period, (b) during disaster, and (c) post-disaster period so a culture of safety and resilience at all levels. that they can be carried out in a planned and coordinated n Reduce underlying risk factors. manner. Implementation of the Disaster Management n Strengthen disaster preparedness for effective re- Law requires systemic changes in various arms of the sponse at all levels. government, and is gradually being implemented. The Government of Indonesia is required to set up a The Government of Indonesia has prepared a National National Disaster Management Agency (NDMA) as a Action Plan for Disaster Reduction 2006­20094 since nondepartmental body, which is equal to a ministry. The the National Middle-term Development Plan does not NDMA will consist of (a) a steering committee whose explicitly address the issue of disaster risk management. members include government officials and members The Action Plan incorporates elements of disaster risk from the professional community, and (b) an executive management in the area of social welfare, natural re- body whose members consist of professionals and ex- sources, and the environment. The disaster risk man- perts. The NDMA has not yet been constituted, and the agement activities are allocated through the following executive body, after its constitution, is expected to pro- annual workplan of the Government: vide leadership to and facilitate implementation of the National Action Plan for Disaster Reduction. n Enhancing natural disaster mitigation and climate forecasting. The details of the various activities mandated through the n Spatial planning and natural resource protection National Action Plan for Disaster Reduction 2006­2009 zoning, including disaster-prone areas in coastal are given below. These are under implementation by the and sea areas. government of Indonesia and are not fully functional. n Developing natural disaster management system and early warning system. Ensure that Disaster Risk Reduction is a National and a Local Priority with a Strong An important element of the Plan is to strengthen the pre- Institutional Basis for Implementation paredness of institutions and the community in prevent- ing and mitigating the risks of future natural disasters. national Institution and Legal Framework5 The initiatives strive for sustainability and stakeholder n Support the creation and strengthening of nation- participation. Strong commitment to selected priority al integrated disaster risk reduction mechanisms. actions characterizes these efforts. These priorities serve n Integrate risk reduction into development policies the purpose of laying a strong foundation for the imple- and planning, including poverty reduction strate- mentation of an integrated sustainable disaster risk re- gies. duction program that is in line with similar efforts at the n Adopt or modify, where necessary, legislation to international level. support disaster risk reduction, including regula- tions and mechanisms that encourage compliance The National Action Plan for Disaster Reduction 2006­ and that promote incentives for undertaking risk 2009 mandates that five key priority areas for disaster reduction and mitigation activities. risk reduction should be addressed: n Recognize the importance and specificity of local risk patterns and trends, decentralizing responsi- n Ensure that disaster risk reduction is a national bilities and resources for disaster risk reduction to and a local priority with a strong institutional ba- relevant subnational or local authorities. sis for implementation. n Identify, assess, and monitor disaster risks and en- resources hance early warning. n Assess existing human resource capacities for n Use knowledge, innovation, and education to build disaster risk reduction and develop capacity-build- 3 City Profiles n Record, analyze, summarize, and disseminate statistical information on disaster occurrence, im- Since climate change is leading pacts, and losses. to environmental degradation, the early Warning n Develop early warning systems that are people Government has taken steps to revise centered, in particular, systems whose warnings are timely and understandable to those at risk. the Disaster Management Law, which n Establish and periodically review and maintain in- formation systems as part of early warning systems. enables regional governments to plan n Establish institutional capacities to ensure that ear- ly warning systems are well integrated into govern- various mitigation and adaptation mental policy and decisionmaking processes. n Strengthen coordination and cooperation among strategies to respond to climate change. all relevant sectors and actors in the early warn- ing chain in order to achieve fully effective early warning systems. ing plans and programs for meeting ongoing and n Create and strengthen effective early warning sys- future requirements. tems in smaller islands. n Allocate resources for development and imple- mentation of disaster risk management policies, capacity programs, laws, and regulations on disaster risk n Support the development and sustainability of the reduction. infrastructure and scientific, technological, techni- n Demonstrate the strong political determination cal, and institutional capacities needed to research, required to promote and integrate disaster risk observe, analyze, map, and forecast natural and re- reduction into development programs. lated hazards, vulnerabilities, and disaster impacts. n Support the development and improvement of rel- community Participation evant databases and the promotion of full and open n Systematically involve communities in disaster exchange and dissemination of data for assessment, risk reduction, including in the process of deci- monitoring, and early warning purposes. sionmaking for issues mapping, planning, imple- n Supporttheimprovementof scientificandtechnical mentation, monitoring, and evaluation. This methods and capacities for risk assessment, monitor- would occur through the creation of networks. ing, and early warning, through research, partner- ships, training, and technical capacity building. Identify, Assess, and Monitor Disaster Risks and n Establish and strengthen the capacity to record, Enhance Early Warning analyze, summarize, disseminate, and exchange statistical information and data. risk assessment at national and Local scale n Develop, update, and widely disseminate risk regional risks maps and related information to decisionmakers n Compileandstandardizestatisticalinformationand and the general public. data on regional disaster risks, impacts, and losses. n Develop systems of indicators of disaster risk n Cooperate regionally and internationally to assess and vulnerability at the national and subnational and monitor regional and trans-boundary hazards. scales to enable decisionmakers to assess the im- n Research, analyze, and report long-term changes pact of disasters. and emerging issues that might increase vulner- 4 Jakarta, Indonesia abilities and risks or the capacity of authorities and communities to respond to disasters. Establish institutional capacities Use Knowledge, Innovation, and Education to Build a Culture of Safety and Resilience to ensure that early warning systems Information Management and Information are well integrated into governmental exchange policy and decision-making processes. n Provide easily understandable information on disaster risks and protection options, especially to citizens in high-risk areas. n Strengthen networks among disaster experts, government officials, etc.). managers, and planners across sectors and be- n Promote community-based training initiatives to tween regions, and create or strengthen proce- enhance local capacities to mitigate and cope dures for using available expertise in developing with disasters. local risk reduction plans. n Ensure equal access to appropriate training and n Promote and improve dialogue and cooperation educational opportunities for vulnerable constitu- among scientific communities and practitioners encies. working on disaster risk reduction. n Promote the engagement of the media to stimulate n Strengthen the use and implementation of updat- a culture of disaster resilience and strong commu- ed information, and technology for disaster risk nity involvement. reduction purposes. n In the medium term, develop directories, inven- research tories, and information exchange systems at the n Develop improved methods for predictive multi- local, national, regional, and international levels. risk assessments and socioeconomic cost­benefit n Institutions dealing with urban development analysis of risk reduction actions. should provide information to the public on disas- n Strengthen the technical and scientific capac- ter reduction options prior to construction, land ity to develop and apply methodologies, studies, purchases, or land sales. and models to assess vulnerabilities to and the n Update and widely disseminate international impact of geological, weather, water, and climate- standard terminology related to disaster risk re- related hazards. duction. Reduce Underlying Risk Factors education, Public awareness, and training n Promote the inclusion of disaster risk reduction natural resources and environmental Management knowledge in relevant sections of school curricula. n Encourage the sustainable use and management n Promote the implementation of local risk as- of ecosystems, including through better land-use sessment and disaster preparedness programs in planning and development activities to reduce schools and institutions of higher education. risk and vulnerabilities. n Promote the implementation of programs and n Implement integrated environmental and natural activities in schools for learning how to minimize resource management approaches that incorpo- the effects of hazards. rate disaster risk reduction. n Develop training and learning programs in disas- n Promote the integration of risk reduction associ- ter risk reduction targeted at specific sectors (de- ated with existing climate variability and future velopment planners, emergency managers, local climate change. 5 City Profiles social and economic development management, including those related to technol- n Integrate disaster risk reduction planning into the ogy, training, and human and material resources. health sector to safeguard hospitals from disaster n Support dialogue, information exchange, and impacts. coordination among institutions dealing with early n Protect and strengthen critical public facilities warning, disaster risk reduction, emergency re- (schools, hospitals, power plants, etc.) to safeguard sponse, development, and other relevant agencies. against disaster impacts. n Strengthen, and when necessary, develop coordi- n Strengthen the implementation of social safety nated regional approaches and create or upgrade net mechanisms. regional policies, operational mechanisms, plans, n Incorporate disaster risk reduction into post- and communication systems in the event of cross- disaster recovery and rehabilitation processes. border disasters. n Minimize disaster risks and vulnerabilities caused n Prepare or review and periodically update disas- by the movement of people. ter preparedness and contingency plans and poli- n Promote diversified income options for popula- cies at all levels. tions in high-risk areas to reduce their vulnerabil- n Promote the establishment of emergency funds ity to hazards. to support response, recovery, and preparedness n Promote the development of financial risk- measures. sharing mechanisms such as disaster insurance. n Develop specific mechanisms to engage the active n Promote the establishment of public­private participation and ownership of relevant stake- partnerships to better engage the private sector in holders. disaster risk reduction activities. n Develop and promote alternative and innovative financial instruments for addressing disaster risk. III/ Jakarta cLIMate change MItIgatIon and adaPtatIon PrograMs Land-use Planning and other technical regulations n Incorporate disaster risk assessments into the ur- Indonesia is the world's third largest emitter of green- ban planning and management of disaster-prone house gases, mainly due to land-use change and defor- human settlements. estation.6 Under the Kyoto Protocol, Indonesia is not n Mainstream disaster risks into planning proce- required to make any firm commitments for reduction dures for key infrastructure projects, including of greenhouse gases.7 Most programs and projects that design criteria, approval, and implementation. focus on climate change mitigation or adaptation have n Develop guidelines and monitoring tools for the their origin in other considerations such as flooding, traf- reduction of disaster risk in the context of land- fic congestion, and pollution. use policy and planning. n Incorporate disaster risk assessment into urban Bus Rapid Transportation System development planning. n Encourage the revision of existing building codes To reduce Jakarta's intense traffic congestion, the Indone- or the development of new building codes, stan- sian Government started TransJakarta, a bus rapid trans- dards, rehabilitation, and reconstruction practices. portation (BRT) system, in January 2004. The provision of dedicated bus lanes has enabled the service to be operated Strengthen Disaster Preparedness for Effective at intervals of only two to three minutes during rush hour. Response at All Levels Most of the buses using the dedicated corridors are low- emission vehicles, running mainly running on compressed n Strengthen policy, technical, and institutional ca- natural gas. (Some run on diesel, but all comply with the pacities in regional, national, and local disaster Euro-II emissions standards.) 6 Jakarta, Indonesia TransJakarta was begun in order to encourage people to use public transport rather than their own vehicles. The system was based on a similar community climate change In 2004, the Government started program in Bogota, Colombia, South America. The implementation of the rapid bus transportation system a rapid bus transportation system in Jakarta has led to substantial reductions in Indonesia's overall GHG emissions.8 In 2008, led to a reduction in using dedicated bus lanes. carbon dioxide of 32,310 tons and in nitrous oxide by 386 tons.9 climatecities. Suggestions for updating these profiles may TransJakarta served 15 million passengers in its first year be sent to climatecities@worldbank.org. and is now one of the largest BRT networks in the world. 1 www.citypopulation.de. Yet the system has not delivered on its potential, as it has 2 www.geographic-guide.com/maps/indonesia-map.jpg. less ridership than systems one-fourth its size.10 In order 3 www.villasinbali.com/maps/jakarta.html. to improve its operations, TransJakarta is now focusing on 4 public awareness and marketing; expansion and integra- Government of Indonesia, National Action Plan for Di- tion with other transport modes, such as rail; and land use saster Reduction, 2006­2009, published by the United planning. Nations Development Program, 2006. 5 Government of Indonesia, Disaster Management Law Three-in-One Traffic System (Law Number 24 of the Year 2007), 2007. 6 World Bank, "PEACE. 2007. Indonesia and Climate In order to reduce traffic jams in Jakarta by discourag- Change: Current Status and Policies." Washington, ing the use of vehicles with very few passengers, the DC. Available at http://siteresources.worldbank.org/ Government has operated the three-in-one traffic system INTINDONESIA/Resources/Environment/Climat- on some arterial roads of Jakarta since 2003. As per this eChange_Full_EN.pdf. road-use system, private cars in restricted zones must 7 Kyoto Protocol. See http://unfccc.int/kyoto_protocol/ carry at least three passengers. The rule has had some items/2830.php. positive impact on the reduction of traffic congestion 8 W. Hook and J. Ernst. "Bus Rapid Transit in Jakarta, during rush hours and the consequent benefit in terms Indonesia: Successes and `Lessons Learned'." Presen- of reduction in carbon emissions. Strict implementation tation. Available at http://www.worldbank.org/html/ of this system has also led to positive behavioral change fpd/transport/learning/presentations/Urban%20 among commuters, who now tend to consider timing in Transport/hook_Jakarta%20pres.%20world%20 their commuting choices. bank%20mar%2005_revised.ppt. 9 notes Ratna Yunita, "Busway for Jakarta: A Pressing Need." This "City Profile" is part of Climate Resilient Cities: A AsiaViews, October-November 2008, p. 14. PrimeronReducingVulnerabilitiestoDisasters,publishedbythe 10Yunita, "Busway for Jakarta," p. 15. World Bank. The analysis presented here is based on data 11 "Experts say three-in-one should stay on the roads." available at the time of writing. For the latest information Jakarta Post, March 4, 2000. Available at http://www. related to the Primer and associated materials, including thejakartapost.com/news/2000/03/04/experts-say- the City Profiles, please visit www.worldbank.org/eap/ threeinone-should-stay-roads.html. © 2009 The International Bank for Reconstruction and Development / The World Bank. 7 City Profiles Sustainable Development East Asia and Pacific Region 1818 H Street, N.W. Washington, D.C. 20433, USA Telephone: 202 473 1000 Facsimile: 202 477 6391 Web Site: www.worldbank.org/eapsd and www.worldbank.org/eapurban