Preflood Management Collaboration in Bandung District

This research is about the condition of the flood disaster in Bandung Regency, which is focused on the local government's steps to prevent, mitigate and prepare. The implementation of disaster management in Bandung Regency is regulated through the Bandung Regency government's policy with the establishment of the Regional Disaster Management Agency. The establishment of the Regional Disaster Management Agency based on the Bandung Regency Regional Regulation number 11 of 2010 concerning the establishment of the Bandung Regency Regional Disaster Management Agency organization, and the Bandung Regency Regent's Regulation number 53 regarding the details of the duties, functions, performance procedures of the Bandung Regency Regional Disaster Management Agency and followed by implementing regulations in the form of Regulations Bandung Regency area number 2 of 2013 concerning the implementation of Bandung Regency disaster management. The authors use common goals, division of roles, communication, and resources as the criteria for successful collaboration. This study uses a qualitative descriptive method where the data collection techniques used are library research and field studies consisting of observation and in-depth interviews. Bandung Regency BPBD will be a crucial sector in collaboration with other relevant authorities in the Bandung Regency area. The study results show that collaboration between organizations in flood disaster management has not gone well, indicated by the unclear distribution of partners in the division of tasks in a clear and written manner and not yet clear. There is a common understanding of disaster management and the lack of resources.


INTRODUCTION
Natural disasters are a real threat to the people of Indonesia, natural disasters can occur suddenly and then can occur anywhere that has a negative impact to the loss of property and even threatens people's lives. In disaster management, the government cannot act suddenly, the government needs planning and coordination with the control span of the incident command system in disaster management. For this reason, in dealing with disasters, the government issued Law Number 24 of 2007 concerning disaster management and followed several implementing regulations in the form of Presidential Regulation Number 8 of 2008 concerning the establishment of the National Disaster Management Agency and Government Regulation Number 21 of 2008 concerning the Implementation of Disaster Management.
BNPB is the National Disaster Management Agency, which is a non-ministerial government agency led by an official at the ministerial level. BNPB is tasked with formulating and determining disaster management policies, handling refugees by acting quickly, precisely, effectively and efficiently as well as coordinating disaster management implementation activities in an integrated and comprehensive manner. Floods in watersheds (DAS) can be caused by natural conditions such as high rainfall, land subsidence and siltation due to sedimentation, as well as dynamic human activities such as inappropriate use of floodplain land, by establishing settlements on riverbanks due to of land conservation.
Based on BNPB data (2019), West Java Province ranks third with the highest number of flood disasters in Indonesia. With this high frequency of occurrences, it is caused by human activities that contribute to worsening environmental conditions, such as experts on the function of forest land into plantations and settlements or development activities that affect ecosystems and ecology in buffer areas. Most of the disasters that occurred in West Java Province were in the South West Java region, with the following details: Bandung Regency BPBD will be a crucial sector in collaboration with other relevant authorities in the Bandung Regency area. The study results show that collaboration between organizations in flood disaster management has not gone well, indicated by the unclear distribution of partners in the division of tasks in a clear and written manner and not yet clear. There is a common understanding of disaster management and the lack of resources. J u r n a l M a n a j e m e n P e l a y a n a n P u b l i k V o l . 05 No . 02, Fe b r u a r y 2 0 2 2 156 Source: BNPB 2019 data Source: Processed data by the Author based on BNPB data, 2021 Based on BNPB data, Bandung Regency ranks first with the highest number of disasters in West Java. With a large frequency of events, the flood disaster had a very large impact, especially on the economic and environmental sectors, both the direct impact of the disaster incident and the indirect impact. The area of Bandung Regency consists of sloping plains, hills and tributaries that flow from Bandung City. These natural conditions make Bandung Regency vulnerable to flooding. One of the causes of the flood disaster was the impact of land use changes that occurred in Bandung Regency, resulting in inundation of flood events in several residential areas. In addition, the unfavorable environmental conditions in the upstream area are mainly related to the function of water absorption which causes sedimentation and flooding in the downstream area. Further data regarding flood events in Bandung Regency can be seen in graph 1.2 below: Source: Processed data by the Author base on BNPB data, 2021 The flood disaster in Bandung Regency has decreased but still causes losses to the community's economy and material losses and casualties. Based on data from the Bandung Regency BPBD, that in the 2015-2018 period the average annual material loss from flood victims reached Rp. 1,334,000,000,-. In addition, the flood disaster caused material losses, as well as other losses. The following is data on the Impact of Flood Disasters in Bandung Regency, including: The recapitulation of the impact of floods in 2015 against 2016 experienced a significant increase. The increase from the number of 20,155 people affected by the flood disaster rose to 124,413 people or 104,258 people. The number of refugees in the refugee camps also increased, from 316 people to 5,694 people and there were people who died.
The flood disaster in Bandung Regency was triggered by high rainfall. On the other hand, the Bandung Basin is increasingly threatened due to land use changes that occur in the North Bandung area and the South Bandung area (KBS), which are rainwater catchment areas. This is the impact of land use change, making the flow of water in the Bandung Basin area even more, not less. The projected construction of the Cieunteung retention pond was previously expected to be able to cope with flooding in Baleendah and around Bandung Regency, but this has not been able to cope with flood events.
Flood events in Bandung Regency are not only in the Citarum River, but also from the Citarum River's tributaries. The problem stems from the conversion of land which was previously rice farming land and swamps are water catchment areas used as buildings. Even the water catchment area is used for the Metropolitan Area in the Greater Bandung Area. Greater Bandung area which is a residential development, business area in Bojongsoang and Tegal outside Gedebage. As a result of this, the Citarum River overflows and its tributaries are no longer able to accommodate the flow of water. The overflowing river water has an impact on residential areas and other public facilities in Bandung Regency being flooded. These are as shown in Table 1.2, among others: Guidelines for the Establishment of Regional Disaster Management Agencies. in the disaster management mechanism that the district/city government is the main person in charge of disaster management in their area.
The policy of the Bandung Regency Government is the establishment of the Regional Disaster Management Agency based on the Bandung Regency Regional Regulation Number 11 of 2010 concerning the Establishment of the Bandung Regency Regional Disaster Management Agency Organization, and the Bandung Regency Regent's Regulation Number 53 of 2010 concerning the Details of Duties, Functions and Performance Procedures of the Regional Disaster Management Agency Bandung district. Followed by several implementing regulations in the form of Bandung Regency Regional Regulation Number 2 of 2013 concerning the Implementation of Bandung Regency Disaster Management.
BPBD Bandung Regency carries out disaster management acting as a leading sector. To cope with disasters at the pre-disaster stage, BPBD coordinates with several other government agencies and is in line with the mandate of the Disaster Management Law which is responsible for carrying out disaster management, not only by the central government and local governments, but involving all elements in the community and the world. effort.
In the perspective of local government administration, disaster management efforts are an inseparable part of the mandatory affairs under the authority of local governments. This is relevant, if it is related to the function of the government, namely providing protection to the community.

No. Sub-District Water level Population 7
Sub-district Kutawaringin 10 -150 cm 25 KK 8 Sub-district Cileunyi 10 -100 cm 3.373 KK 9 Sub-district Rancaekek 10 -100 cm 3.383 KK 10 Sub-district Cicalengka 10 -100 cm 85 KK But in fact, the collaboration carried out by the Regional Disaster Management Agency has not run optimally. In disaster management at the pre-disaster stage, it is hoped that it can be an opportunity for the region to optimize flood disaster risk and increase disaster-resilient villages. The formulation of the problem in this study is to find out how disaster management carried out by the Bandung Regency Regional Disaster Management Agency in carrying out flood disaster management activities has not been running optimally. This study uses a theoretical approach in explaining concepts, methods and uses research data to discuss existing problems. This article aims to provide an overview of collaborative flood reduction in Bandung Regency.

LITERATURE REVIEW
Research that emphasizes Collaboration Towards Resilience: The Ende Youth Experience in Disaster Risk Reduction (Ni'am & Ardianto, 2013) as well as the implementation of disaster management in the regions (Hakim, 2005) . In addition, research on collaborative disaster management has also been carried out, such as research on flood disasters. From these studies, it can be concluded that the study of Collaborative Disaster Management in this area is an effort to find out Disaster Management policies implemented by local governments and the obstacles experienced in implementing these policies.
Collaboration is cooperation carried out to achieve common goals, this is in accordance with the opinion (Kim, 2009) : "The year Minnowbrook III was held, the term "collaboration" was widely used in all public, private, nonprofit sectors and was especially prevalent in the public administration and public management literature. Collaboration means to co-labor to achieve common goals, often working across boundaries and in multisector and multiactor relationships. Collaboration is based on the value of reciprocity".
The public administration and public management literature often uses collaboration, as well as in all public, private and not-for-profit sectors. Collaboration is working together to achieve common goals, in multi-sectoral and multi-actor relationships collaboration works across boundaries on the basis of reciprocity, therefore collaboration is more than just working together. Disaster management according to Law Number 24 of 2007 concerning disaster management states that a disaster is an event or series of events that threatens and disrupts people's lives and livelihoods caused, both by natural factors and/or non-natural factors as well as human factors, resulting in human casualties, environmental damage, property loss, and psychological impact.
Collaboration must also have great trust among members of the collaboration for disaster management in Bandung Regency and involve several OPDs. The Regional Disaster Management Agency serves as the coordinator. The coordination carried out by BPBD must be understandable and must go through a strong commitment so that problems can be solved using the Allen's (2011) Framework of collaborative capacity model. The Regional Disaster Management Agency finds solutions to collaborate in the field of disaster (Allen, 2011). This study tries to find out collaborations for pre-flood handling in Bandung district because no one has discussed special collaborations in pre-flood management but post-flood handling.

RESEARCH METHODS
In this study, the author uses a qualitative method with a descriptive approach, namely research conducted to describe a problem without making comparisons (Creswell, 2014) . This descriptive approach is carried out by collecting data and then processing and analyzing it to obtain an overview of the problems faced during the research, this problem is then connected with a theory that has been previously determined to find out how to solve the problem.
Researchers collect data. The data that the authors collect in the preparation of this study is divided into two, namely primary and secondary. Primary data obtained in this study through observation and interviews, while to obtain secondary data the researchers conducted a literature study and documentation study.

RESULTS AND DISCUSSIONS Purpose in Flood Disaster Management
Collaboration in flood disaster management is more visible during the pre-disaster and postdisaster stages. During an emergency response, what is needed is the immediate deployment of physical assistance. In the pre-disaster stage, such as in mitigation activities, joint efforts are made between related organizations in disaster management. The elements involved are government elements, in this case the Bandung Regency BPBD with other related agencies, community elements who are members of NGOs. The purpose of this collaboration is so that flood prevention can be assumed and understood by various parties so as to reduce the possibility of flooding or if in the end the flood occurs it does not take any casualties because various parties have prevented the occurrence of things that are not desirable. The Department of Health assists in the health sector. The task of the Health Service is focused on the three stages of a disaster, pre-disaster, emergency response and post-disaster stages. In the pre-disaster period, the health department carried out a disaster early warning system, which is a system that carries out epidemiological studies, inventory of man, money and material forces and mapping disaster-prone areas. The epidemiological study identifies what happens when a flood disaster occurs in health aspects such as polluted water and diseases that usually occur in disaster areas.
In the pre-disaster stage, BPBD also mapped affected and potentially disaster-prone areas together with other organizations such as the SDAPE Service, community parties such as the Baraya Bandung NGO, West Java Walhi and nature lovers. Mapping is carried out to identify an area that is prone to disasters in order to prepare specifications for the required manpower in terms of quantity and quality. Because floods will have different needs with landslides or social disasters.
In an emergency response, the health department responds by conducting a Rapid Health Assessment. Rapid Health Assessment is the first action taken to assess the condition of the disaster-affected area regarding data on population, number of victims, amount of property saved, number of damaged buildings, what equipment is needed. After conducting the assessment and knowing what is needed, conduct a Public Health Response , namely first aid from the health department in the affected area with quantity and quality adjusted to the results of the assessment obtained. Response Public Health is tasked with checking whether the water sample is clean or contaminated, if the water is contaminated, the health department supplies clean water to flood victims. In the emergency response, the health department provides medical assistance and also deploys field doctors according to the disease that occurs in the flood disaster area.
Understanding the duties and functions of each shows that the relationship between organizations involved in flood disaster management has not been well established. The duties and roles of each related element will be better understood if there are Standard Operational Procedures (SOP) which are the basis for the division of roles and duties of elements related to flood disaster management. When there is understanding and awareness between organizations to collaborate plus regulations governing the role of partners and regarding the duties and roles of each party involved in the implementation of flood disaster management, synergy between organizations will form and make it easier for all related elements to achieve common goals.
In the post-disaster stage, the health post is still standing because it is also necessary to restore the physical condition of the community after a disaster occurs. Counseling is also carried out for people who are psychologically affected. Efforts to rehabilitate infrastructure such as toilets that must be clean without contamination. Post-disaster is done to prevent new diseases. The Department of Social Affairs is in charge of providing logistics. In the emergency response stage, the Social Service assisted in the establishment of refugee shelters and the establishment of public kitchens. The social service also mobilized disaster preparedness cadets (tagana) to assist in flood prevention. Distribution of logistics is carried out in accordance with the results of the assessment.
The Satpol PP who assists in the security phase and assists in disaster evacuation for the community so that they feel comfortable in disaster conditions. Satpol PP also sent representatives to join the rapid response team for disaster management. The community helps volunteers with tasks such as assessment, evacuation and logistics distribution to disaster locations. NGOs, SAR teams and nature lovers have the task of approaching the community in the pre-disaster and emergency response stages. In the pre-disaster stage, NGOs such as Baraya Bandung and Walhi Jabar carried out disaster mitigation. Disaster mitigation is carried out in the form of mapping an area that has the potential for a disaster to occur. Each region differs regarding the type of disaster predicted. Such as in Baleendah, Dayeuhkolot and Bojongsoang areas which have the potential for flooding, Ciwidey District, Rancabali which have the potential for flooding and landslides, Kutawaringin District which has the potential for flash floods. In addition to disaster mitigation, NGOs and communities that are active in disaster management also provide information on the dangers of flooding to communities in flood disaster areas such as Dayeuhkolot, Bojongsoang, and Ciwidey areas. During the emergency response stage, NGOs and the community themselves took initial action by establishing a relief post.

Disaster Management Structure
The process by which an organization monitors and evaluates its collaborative behavior with other players by stages through the structure to reveal what role each member should play in its rules. Structure occurs when there are two different things, then actions are taken to overcome the differences in the way of working, the culture of individual work styles, organizational norms and values brought by each organization that has collaborated to find work styles, norms, ways of working together. Structure becomes important in collaboration between organizations because it comes from different organizations. If there is no understanding of how the work between organizations will have an impact on the chaotic flow of collaboration that exists. Therefore a clear structure is needed. Determination of formal and informal procedures can be done through meetings or brainstorming, both formal and non-formal, which must be carried out together to avoid misunderstandings between related elements.
According to the results of the interviews conducted, it was quite good, especially during the disaster emergency response stage. From each activity report, all related elements are given at the emergency response stage and discussed through meetings. However, in the pre-disaster and post-disaster stages, it was not very good even though what was more visible when working collaboratively was in the pre-disaster and post-disaster stages. Intensifying meetings in all stages of a disaster can also be used as a means for reporting the results of the activities of the related elements. Meetings can be held at the end of each month.
The meeting for collaboration conducted by the government and the community in the context of flood disaster management in Bandung Regency will discuss the role of each related element and also the problems faced. As has been done by all related elements in flood disaster management, they conveyed the obstacles faced and all agencies or from the community also accepted that in this collaboration they faced various obstacles. The existing obstacles are conveyed so that all relevant elements involved are aware.

The Communication Process Carried Out Between Related Elements
Communication between related elements is not only carried out in a meeting to collaborate, but also communication in the field with communication media through radio communication, Handy Talky and cellphones. The meeting for collaboration was initially held to state the common goals of the elements involved in collaborating in flood disaster management. Furthermore, meetings are held periodically every three months and will increase the intensity of the meeting in the event of an emergency response. 164 amateur radio organizations is useful in preparing for flood disasters for areas that are usually flood-prone areas.
Communication that occurs in flood disaster management in Bandung Regency in two directions is useful for seeing the role of each related element in conveying information. Communication is carried out by related elements who have officers in the field when a disaster occurs. The officer provides information through communication media (communication radio, telephone, sms, email, fax, Handy Talky) or also reports directly. Implementation for regular communication meetings/forums in discussing problems that arise in flood disaster management. The author received an explanation that the implementation of meetings that are held regularly at least once every three months considering the condition of Bandung Regency which is prone to disasters. Based on the results of interviews, meetings are not routinely held to hold forums or meetings, but meetings are held regularly because Bandung Regency itself is prone to disasters.
The meeting that has been held has indeed been going well, but it is still necessary to have an understanding between the elements involved in flood disaster management. The meeting which was held for a minimum of three months was deemed insufficient because the meeting was needed to obtain information about the situation of the flood-affected area. The collaborative meeting in flood disaster management in Bandung Regency will only be increased in intensity when there has been an increase in the status of an emergency response.
Overall, there were shortcomings in the meetings, such as the need for a clearer understanding of the results of the meetings that have been held. In fact, there is still one element that does not participate in the meeting, causing disharmony. The shortcoming in the meeting, which is very important, is that the meeting is not held regularly, only periodically for at least three months.

Resources in Flood Disaster Management
Resources explain three aspects, namely first who should be involved. The second is the process of collaboration, namely Knowledge and Ability. The third is the power of funding a form of accountability to the organization. In terms of resources, the author can conclude that the quality of human resources owned by BPBD Bandung Regency is said to be still lacking in personnel such as a shortage of experts such as geologists, irrigation and planologists. In addition, the quantity is still far from sufficient based on a job analysis that ideally the number of available employees should be 50 people, while until now the number of employees owned by BPBD Bandung Regency is 32 people.
The author has an explanation that in making a decision all related elements are carried out through meetings involving all related elements to participate in decision making. In decision making, all related elements are involved because the Bandung Regency BPBD cannot decide for themselves the decisions to be taken. But it must involve other elements to give consideration or advice regarding the decision making. Furthermore, the consensus building step by step is to know the purpose of the consensus itself. Consensus is an agreement reached through unanimity. The unanimity taken is the responsibility of all related elements in disaster management collaboration. If one of the consensus members disagrees, there will be no decision. Consensus is the right way to eliminate the dominance of one of the related elements in making a deal.
Strength explains that the role of the leader is in mobilizing and monitoring directly the activities carried out so that they run according to the desired goals. Then trust in collaboration also explains that there is no mutual suspicion and mutual respect between related elements. The increased trust in collaboration, the better the implementation of the flood disaster management collaboration itself. The second indicator regarding trust between collaborating organizations is still low. Especially the trust that was built from the community and NGOs to the Bandung Regency BPBD because BPBD is a newly formed organization for disaster management issues that still lacks in terms of field skills. In addition, the Bandung Regency BPBD is considered by NGOs and the disaster community to be still slow in carrying out their duties. Trust from related elements exists because the Bandung Regency BPBD is headed directly by the Bandung Regency Regional Secretary.
The third aspect of the Bandung Regency BPBD as an agency in the Bandung Regency area that is engaged in disaster management must of course have a clear source of funding in accordance with PP No. 22 of 2008, Based on the results of the author's interview with informants that the origin of the funding is for the implementation of early prevention and disaster victim management activities. floods come from the APBD, APBN, and other funds such as from BNPB and Non-Government Organizations (NGOs). In its implementation there are no problems or obstacles that occur when disbursing disaster management funds, because these funds are direct funds available in the BPBD budget so that they do not require an application for funds to the central or regional government in the event of a disaster.
In the description above, the author tries to discuss it above, it is stated that there is no existing understanding of the common goal in flood disaster management. The related elements only know about the duties of each related element. regarding the understanding of the common goal of all related elements are in the first stage, namely purpose. Shared goals are the main reason why collaboration between organizations must be carried out. The setting of common goals is carried out at three levels, namely setting goals at the top level, elaborating the interests of the related elements and elaborating the goals of each related element.
The setting of common goals in flood disaster management in Bandung Regency has not been carried out properly because it appears that there are related elements who do not understand the common goals of all related elements. Goal setting at the top level that is not yet good can result in collaboration experiencing obstacles, for example because the goals of each related organization are different, it will result in a lack of integration in collaboration because each related element carries out its respective duties. What should be done by all related elements in flood prevention is the re-establishment of common goals regarding flood disaster 166 management by establishing a grand design. This needs to be done so that all related elements do not carry out their duties individually.
Technically, BPBD Bandung Regency is in the process of preparing Standard Operational Procedure (SOP) in three stages of disaster, namely pre-disaster, emergency response and postdisaster which regulates who should do what for all related elements in flood management. So that all related elements know what to do in the three stages according to the shared goals set.
Collaboration is an operating concept to solve a problem that cannot be solved by one organization alone. Collaboration also requires the willingness of an organization to increase the capacity of each other to set goals. In the collaboration process, there are six stages that must be passed by the relevant organizations to carry out collaboration, namely: (1) Purpose, (2) Structure, (3) Communication, (4) Resources. In these four stages, the author feels that it is not enough to be used as a stage in collaboration. The author sees that there are still factors that must be passed in carrying out collaboration. The author finds that there are two factors that influence the implementation of the collaboration stage, namely about leadership and adaptation.
Leadership is an important element in collaboration. Leadership is done to influence other organizations. Good leadership qualities will increase the trust and shared goals of other related elements in collaborating, especially considering the current condition where the Bandung Regency BPBD has not been trusted by other related elements because it is still a new organization and lacks field skills regarding disaster. In addition, good leadership will also make collaboration in flood disaster management remain in one common goal. So that there is no work that seems to be done individually by the elements involved. The success of collaboration in flood management also depends on good leadership.

CONCLUSIONS
In collaborating, we often find organizations with different backgrounds, both in culture and ways of working. When deciding to collaborate, the entire organization enters a new and different environment from its original environment. The adaptability of an organization can reduce the risk of conflict between organizations in collaborating. In adapting in a collaborative environment, it will also increase mutual respect for other related elements. BPBD Bandung Regency has not been trusted by several other related elements because it is a new organization. BPBD Bandung Regency was formed based on the new dimensions of disaster management, namely: 1. Disaster management as a comprehensive and proactive effort starts from disaster management, emergency response, and rehabilitation and reconstruction. 2. Disaster management is a joint effort by stakeholders with complementary roles and functions. 3. Disaster management as part of the development process so as to create resilience to disasters.
This new dimension in disaster management requires adaptation of related elements in disaster management as stated in the first point that disaster management is a comprehensive and proactive effort. Changes in dimensions that require related elements to adapt can be seen from the trust given to BPBD Bandung Regency as an organization focused on disaster management.
Collaboration in flood management in Bandung Regency requires good cooperation between all related elements to be able to provide the best service to people who are directly or indirectly affected by the flood disaster. The existing collaboration is expected to produce synergy between related elements in flood disaster management. In addition, collaboration is also needed to minimize the risk of the flood disaster itself. Bandung Regency is an area with a high level of flood vulnerability requiring a common goal from all parties to jointly overcome flood disasters based on three stages of disaster management, namely the pre-disaster stage, emergency response stage and post-disaster stage. regarding collaboration for flood disaster management in Bandung Regency, it can be concluded that collaboration in flood disaster management in Bandung Regency through the stages of collaboration has not been completely passed.
In addition to the four stages of collaboration, there are factors that must be passed by all related elements in flood disaster management. The factor is the adaptation factor, the adaptation factor becomes an important thing where when an organization is involved to collaborate in disaster management, there is a cultural change before being involved in collaborating. The adaptability of an organization can reduce the risk of conflict between organizations in collaborating. In adapting in a collaborative environment, it will also increase mutual respect for other related elements.