Inspection and Handling Programme Maintenance Drainage

as Public Service on Disaster Region

Parbowo
Agus Setiawan Solihin
Pusat Litbang Jalan dan Jembatan
Jalan A.H. Nasution No. 264, Bandung. 40294
Email: parbowo@pusjatan.pu.go.id
agus.setiawan@pusjatan.pu.go.id
Abstract

The national government through The Ministry of Public Works and Housing Indonesia has a duty
to fully fulfill its role as road manager. Road management consist of series of roles, namely road
arrangement, guidance, development and supervision. The Minister of PWH as one of
government’s elements need to establish policies (in term of regulation) which can be used for all
levels of roads in Indonesia, whether it’s national, province, or district / city roads. Technically,
road drainage is a building that is intended to protect road construction from runoff, both to
accommodate and drain rainwater or water that is on the road surface, road shoulder, and other
pathways as well as water from drainage below the road surface, but in disaster prone areas
drainage conditions are generally damaged and do not meet standards, thus accelerating damage
to the road's technical life. To encourage maintenance of the drainage function, especially in
disaster prone areas, rapid inspection and treatment programs are needed, so drainage functions
as a form of government presence in public services to the community. This paper aimed to
discuss inspection and drainage handling programs with the method used is qualitative, namely
literature review related to legality, and interviews with stakeholders. The results of studies and
interviews were analyzed qualitatively. Quantitatively, this paper measured drainage dimensions
in the field and visual observations of physical conditions and function of drainage. From these
results, a weighting analysis was then carried out to assess the conditions which can then be
determined by the drainage handling program.

Keywords: Drainage, Disaster Prone Areas, Public Services, Inspection

INTRODUCTION
The government through the Minister of Public Works and Housing (PWH) is obliged to fulfill the
role of the road as it should, so that the government has the right and obligation to carry out the
road. Implementation of roads is an activity that includes regulation, guidance, development, and
road supervision, so that the Minister as one of the elements of the central government needs to
develop policies in the form of regulations that can be used for all roads in the Republic of
Indonesia (NKRI) in road management, both national, provincial and district / city roads.
The Minister of PWH, in accordance with the mandate of Law No. 38 of 2004 and Government
Regulation number 34 of 2006 about roads, is the minister responsible for the road sector, where
roads as part of the national transportation system have an important role especially in supporting
the economic, social and culture and environment and developed through a regional development
approach to achieve balance and equal distribution of development between regions, forming and
strengthening national unity to strengthen national defense and security, and forming spatial
structures in order to realize national development goals.
There are often problems related to puddles or flood and damage to the structure of the road due
to the not optimal function of the drainage system. According to Agus T.M (2018), bad road
drainage system contributes to road damage up to 44%, besides due to construction not meeting
the standard is up to 44% and excess load is 12%. This can be aggravated if the road is in disaster-
prone areas, such as lands that have the potential to move (landslides), flood areas (there are
many puddles on the body of the road) and so forth. For these reasons, it is necessary to study
the handling of drainage maintenance in disaster-prone areas, because roads that are not well
connected due to poor drainage or damage will hamper the development of the area, such as
resulting in the isolation of an area from other regions, resulting in traffic constrained. which in the
end the handling or recovery after the disaster is hampered which will cause a decrease in the
physical, social and economic development of the community.
Technically, road drainage is a building that is intended to protect road construction from runoff,
both to hold and drain rain or water on the road surface, road shoulder, and other pathways and
water from drainage below the surface. Thus, drainage helps the road to be able to fulfill the
service, flowing the traffic according to the planned age. Well-functioning drainage will be able to
drain runoff water with planned discharge and avoid puddles that have the potential to damage
road construction. Roads are a serious concern for road operators who are faced with the target
of uninterrupted road services in various conditions and make road construction reliable. With
reliable roads, efficiency in road construction can be achieved.
So far, road drainage maintenance activities have not been implemented properly (right quality
and budgeting) both at the central level (Bina Marga/Directorate Gen. of Highway) and the
regional (Provincial, City/District). Mostly due to the lack of a maintenance budget because they
are more focused on road stability, or because the proposed budget is not mentioned in detail.
The definition of a drainage system undergoes a paradigm shift from the concept of a conventional
drainage system to a sustainable drainage system. The definition of conventional (previous)
drainage systems according to Suripin (2015), is to drain rainwater (run-off) as fast as possible to
the nearest water recipient / water body, so that the nature of the handling is still technical and
not considering environmental (conservation), socio-economic and cultural factors, and
environmental health. The definition of a sustainable urban drainage system (SUDS) is to control
excess surface water that can be used for raw water supply and aquatic life by absorbing as much
surface water as possible into the ground (considering water conservation.
By looking at the importance of the drainage function on the road, the government has issued
Government Regulation (PP) number 34 of 2006 as a derivative of Law No. 38 of 2004, that states
only some parts of the drainage system that are as roadside ducts, and culverts, which are part
of the Rumaja, namely space reserved only for the median, road pavement, dividing lane, road
shoulder, roadside ducts, sidewalk, slope, safety threshold, heap and excavation, culverts, road
equipment and other complementary buildings. Other government policy that states the flow of
runoff water on the road can also be seen based on Minister of Public Works Regulation number
20/PRT/M/2010 concerning Guidelines for Utilizing and Using Road Parts that states a roadside
ducts (as part of a drainage system) is a part from Rumaja, namely space along the road which
is limited by the width, height and certain depth specified by the road operator and is used for
road bodies, roadside ducts and safety thresholds. In this government policy, it is only explained
about roadside ducts, not all parts of road drainage. However, in the Minister of Public Works
Regulation number 19/PRT/M/2011 concerning Road Technical Requirements and Technical
Planning Criteria for Roads, drainage sections have begun to be listed which can be seen in article
15 that road construction that functions as a traffic lane covering the upper and lower traffic, flyovers,
and tunnels must be equipped with a drainage system. For road complementary buildings
for the construction listed in article 21 which covers roadside ducts and culverts. Roadside duct is
a channel for accommodating and flowing rainwater or water that is on the road surface, road
shoulder, and other pathways as well as water from the drainage below the face of the road, along
the road corridor. The culvert is a channel under the surface of the road to drain water by cutting
the road body transversely. However, this ministerial regulation does not cover all parts of the
drainage that will affect road construction, because the drainage system that will affect road
construction includes many parts, namely roadside ducts, culverts, inlets, outlets, control tanks,
subdrain, LIDs, polders, including road slope surfaces.
The drainage conditions that have been built (either with construction of buildings and or only with
excavated land) can be examined through road collection activities which are carried out based
on Minister of Public Works Regulation number 13/PRT/M/2011 concerning Procedures for
Maintenance and Road Surveillance. Besides, there’s another regulation of Minister of Public
Works Regulation number 12/PRT/M/2014 concerning the Implementation of Urban Drainage
Systems which is the Implementation of Urban Drainage Systems namely planning, construction,
maintenance, and evaluation of physical and non-physical drainage systems. Thus, this new
regulation completes drainage for urban areas, making it possible for areas outside the city.
By looking at these technical regulations, the specificity of handling drainage is still considered
lacking, because it is still more focused on the road body. Urban areas and specific drainage
section are still limited and not fully integrated, so it needs to be more specific to drainage (needs
technical instructions). In 2005, the Construction and Building Guidelines concerning Road
Drainage Inspection and Maintenance had been carried out from the Department of Public Works,
which only contained drainage parts including control tanks, culverts, road surface drainage, trash
cans and inlets through routine and special inspections. However, problems are growing from
time to time, so it is necessary to develop research on inspection of drainage functions as part of
integrated reliable road inspection to make better handling drainage system. For this reason, in
2017 the Institute of Road Engineering of Ministry of Public Works and Housing developed
Guidelines for the Development of Road Drainage Systems, which is very useful for inventory and

inspecting road drainage, both in the general area and in disaster-prone areas. For this reason,
the goal of this paper is to review the drainage inspections by integrating between inventory and
inspection and looking at drainage conditions (roadside ducts, culverts, inlets, outlets, control
tanks, subdrain, Low Impact Drainage, polders, including Surface channels road slopes), so that
the government can then carry out special handling programs especially in disaster-prone areas.
LITERATURE REVIEW
Road Drainage
Drainage, which is flowing, draining, removing, or diverting water (Suripin, 2004). A way to dispose
of unwanted excess water in an area, as well as ways to mitigate the effects of the excess water
(Suhardjono, 1984). Drainage is any attempt to drain or discharge excess water in an area, both
surface water and sub-surface water, the disposal can be to natural water bodies (rivers, lakes)
or artificial (ducts, infiltration buildings) and can be done by natural means (system gravity),
mechanical means (with pumps) or a combination of both (Directorate General of Highway, 2005).
The roadside duct is a part of complementary construction in road that supports the function and
security of road (Ministry of PWH Regulation No. 13 of 2011 and Ministry of PWH Regulation No.
11 of 2010). The roadside duct is a complementary construction that functions as a support for
road construction (Ministry of PWH Regulation No.19 of 2011). Based on the three Regulations,
it has been required that roadside ducts (road drainage) are indeed mandatory and must also be
managed.
Inspection and Drainage Handling Program is a system of planned and integrated handling and
management of road drainage through activity of input data conditions (inventory and inspection)
of road drainage and assessment of conditions as advice for drainage handling programs (routine
maintenance, periodic maintenance, rehabilitation, reconstruction). Furthermore, it is interpreted
as the implementation of a road drainage management system which is an effort to inventory
assets, inspect conditions, assess conditions and develop a program for handling road drainage.
Inventory activities are data collection activities, recording and reporting of data collection of
government property (BMN), at least 1 (one) time in 5 years (Circular of the Minister of Public
Works Number 05 of 2014). Whereas the inspection activities are visual observation of road
drainage conditions through detailed examination and recording of the condition of the building
and its complementary facilities (Pd T-14-2005-B).
As mandated in Article 85 of Government Regulation Number 27 of 2014 concerning Management
of Government Property (BMN), Property Users must carry out an inventory of the property at
least 1 (one) time in 5 (five) years, the results of which will be reported to no later than
3 (three) months after completion of the inventory. Inventory is done to find out the actual value
and condition of BMN with the aim that all BMNs can be properly recorded, thus simplifying BMN
management.
The inventory of road drainage assets consists of two aspects, namely physical and juridical/legal
inventory. Physical aspects consist of form, area, location, volume/number, type, address and
others. Meanwhile, the juridical aspect is the status of authorization and the legal problem. The
work process carried out is data collection, codification/labeling, grouping and
bookkeeping/administration in accordance with the objectives of asset management.
The purpose and benefits of inventory of road drainage assets are assisting asset owners (DGH)
in monitoring, controlling and maintaining assets, improving physical security and legal aspects
of assets, and facilitating the provision of information when reporting asset inventories. The activity
of road drainage inspection is one part of the activities integrated in the road drainage
management system, together with inventory, condition assessment and maintenance programs.
Road drainage inspection consists of routine and special inspections. Each inspection is carried
out by collecting data and examining the condition of roadside ducts, culverts, outlets, subdrain,
LIDs and road slope drainage. The inspection is carried out visually in the field using a printed
form or an Android/iOS based application form and is supported by several equipment.
Inspection data is recorded and managed in GIS-based and web-based database applications
and is also known as the Road Drainage Management Information System. The database can be
accessed by Android/iOS and desktop by stakeholders and the general public. The purpose and
benefits of inspection activities help asset owners (DGH) in monitoring, controlling, maintaining,
improving physical security, functioning, providing physical information, conditions, and preparing
program activities to maintain the service life of the road drainage system. The road drainage
management information system (SIMDJ) is one of the "tools" or subsystems of the road drainage
system management. This tool is a system that integrates the results of inventory, inspection,
condition assessment (level of risk), handling and preparation of road drainage system
maintenance programs in the form of an Android-based application/software system that contains
information about road drainage conditions and functions. The information displayed is based on
the results of inventory surveys and inspections.

Disaster Prone Areas

The Guideline of Disaster Management Implementation (that has an impact on Roads and
Bridges) from the Directorate of Highways of the Ministry of Public Works number 02/P/BM/2014,
states that natural disasters is events or a series of events that threaten and disrupt the lives and
livelihoods of people caused both by natural factors and/or non-natural factors and human factors,
resulting in human casualties, environmental damage, property losses and psychological impacts.
Natural disasters that affect roads and bridges are events or series of events resulting in disruption
or interruption of the functions of roads and bridges caused by natural factors, resulting in
disruption to the movement of goods and human traffic, and causing losses due to disruption of
social activities and economy. For this reason, emergency disaster assistance that affects roads
and bridges is needed, which is all efforts to provide assistance so that road and bridge facilities
and infrastructure can function again even though they are temporary and emergency. It is done
through rapid assessment of road damage and bridges, a systematic effort to obtain information
quickly regarding damage to roads and bridges due to natural disasters and estimates of losses
incurred.
In the Ministry of Public Works and Housing there has been a Disaster Management Task Force
(SATGAS PBPU) which has the authority to direct and control each work unit within the Ministry
of Public Works in implementing disaster management during disaster response. For more details,
see in Figure 1.
 Figure 1. Tasks and Authorities of SATGAS PBPU

Source: Guideline of Disaster Management Implementation affecting roads and bridges of DGH
Ministry of PWH No 02/P/BM/2014.

Public Service
Nugroho (2008) states that the main task of government for society to live and develop is to
provide three types of tasks carried out by organizations that are deliberately formed to carry out
these tasks. The types of task are:
1. Service (public): is the task of providing services to the public without discrimination and
provided free of charge or at a cost in such a way that even the most incapable groups
can reach them.
2. Development: is the duty to improve the economic welfare of the community. This task
focuses on efforts to build productivity from the community and create economic value for
the economic productivity.
3. Empowerment: is the role to make every citizen of the community able to improve the
quality of humanity and society.

With this understanding, it is appropriate for the government (through the Ministry of PWH) to
improve the welfare of the community, to be quick and precise in disaster management programs.
The concept of public facilities services must be excellent, which according to Fittzsimmons and
Fittzsimmons in Rusli Budiman (2014), must be developed in accordance with Tangibles
(adequate physical evidence, including human resources), Empathy (emotional ability to the
needs of all stakeholders), Reliability (services that fast and precise without discrimination),
Responsiveness (responsive to stakeholder complaints), and Assurance (guarantee of certainty
of quality and quantity of service). With this function, it is expected that disaster management
programs can continue through increasing the role of stakeholders including the government,
regional government, the private sector and local communities.
Furthermore, the Technical Guideline for Public Service Standards is also stipulated in Minister
of Administrative and Bureaucratic Reform Number 36 of 2012 that by 2025 we reach the
implementation of prime services with international standards. As for Law No. 25 of 2009
concerning public services, among others, explains about some of the following:
1) Basic thought that contains:
a. The obligation of the country to serve the basic rights of society
b. Build community trust to the country
c. The legal norm of public relations with the country
2) Character
a. Strengthening and empowering the community
b. Strengthening and bridging laws
3) Purpose and Objectives
a. Legal certainty for the community and organizers
b. A clear boundary between rights, obligations, authority, prohibitions
c. Appropriate system and community protection

Based on Law Number 25 of 2009 concerning public services, Article 1 paragraph 1 explains that
what is meant by public service is an activity or series of activities in order to fulfill service needs
in accordance with the laws and regulations for every citizen and resident toward goods, services
and or administrative services provided by public service providers. The meaning of public service
is every state administering institution, corporation, independent institution formed based on the
law for public service activities and other legal entities formed solely for public service activities.
In Law Number 25 of 2009 Article 4 concerning Public Services, it is also explained about the
principle in the implementation of public services, namely: 1) Public interest, 2) legal certainty, 3)
Human rights, 4) Balance of rights and obligations, 5) Professionalism, 6) Participatory, 7) Equality
of treatment/non-discrimination, 8) Openness, 9) Accountability, 10) Facilities and special
treatment for vulnerable groups, 11) Punctuality, 12) Speed, ease and affordability.
In Law Number 25 of 2009 Article 15 letter (a) concerning public services, states that "the
Operator/organizer is obliged to prepare and set service standards ", and later in Article 20 it is
explained that "The Operator is obliged to set up and set service standards by taking into account
the operator’s ability, community needs, and environmental conditions, operator must involve the
community and related parties.
HYPOTHESIS
Inspection and Program for Handling Drainage Maintenance in Disaster Prone Areas is an effort
to provide public services as a government obligation through integration activities between
inventory and inspection by looking at drainage conditions which include roadside ducts, culverts,
inlets, outlets, control tanks, subdrain, LIDs (Low Impact Drainage), polders, including road slope
surfaces in areas prone to natural disasters, so that they can carry out a management program
so that road and bridge facilities and infrastructure can function again even though they are
temporary and emergency, or better than before, through rapid assessment of road drainage
conditions.

METHODOLOGY
This paper used primary data and secondary data. Primary data was obtained through surveys
and interviews of experts from various government agencies and business entities related to the
issues under study. Samples were obtained through purposive sampling method, the sample was
chosen slightly and selected according to the research objectives (Arikunto 1993). This paper also
measured the dimensions of the drainage, as well as visual observations of the function of the
drainage ducts. From the combined results of these two data, a scoring of drainage conditions was
be made which would determine the drainage maintenance program.
Government institutions as the source of data included: Directorate General of Highway, National
Road Operator (BBPJN) VI, VII and VIII, Department of Public Works and Spatial Planning of
East Java Province, Semarang City, and Cirebon City. The chosen location is still on the island
of Java as a research sample, because this region is also a potential for disaster-prone areas of
flood, which is caused by a large tide so that sea water enters the land, and annual flooding occurs
due to high rainfall and clogged drainage by something (garbage, sediment, etc.), so that the
water flow is not functioning properly. The secondary data included government legislation related
to the implementation of infrastructure for public services, and input from various experts and
practitioners. The laws and regulations included regulations on drainage, roads and public
services. With other agencies, interviews were carried out with relevant officials as respondents,
so that data was obtained on the types of handling, and activities that had been carried out, as
well as lack of program management, community participation and so on. The measurement of
drainage and direct observation were done on the national road segments in Banten Province
(BBPJN VI), and provincial roads segments in the Lembang - Subang road (West Java Province).
The analytical technique used was a descriptive qualitative analysis approach and quantitative
analysis. This technique is used for research where data collection is done through observation
and interviews with data obtained in the form of words, writings, images, and numbers. Then the
data obtained is then collected and carried out in a detailed recording related to the research
problem. Data collected from discussions and interviews were then verified and "confronted" again
with other data sources. As for quantitative data, the analysis was performed by checking the
validity of the findings, and scoring. Data analysis was done through the process of searching and
managing the results of interviews or material that has been systematically collected, and
combined with the results of quantitative analysis.
The process of checking the validity of the data was done to obtain the right and objective
conclusions that correspond to the facts. The analyzed aspects in this study included:
1. Public Services: to assess the pattern of services provided, and how to develop strategies to
improve service to the community.
2. Measuring the structure and function of drainage, which is then recorded through the
dimensions of drainage measurement data, as well as photos of drainage conditions for further
scoring.
This research was carried out systematically and thoroughly through literature review and
interviews with stakeholders related to the provision of infrastructure development for public
services. The results of this study are expected to be utilized by the government in making
drainage handling programs in areas prone to natural disasters.
Broadly speaking, the stages in this study began with background identification which justifying
the need for an inventory and then inspection, resulting in an assessment of drainage conditions
through scoring, based on good conditions, light damage, moderate damage, and severe damage.
Thus, the program would then be formulated through periodic maintenance, rehabilitation and
reconstruction. For more details, see in Figure 1.
Fig. 1 Flowchart of Inspection Process and Program for Handling Drainage Maintenance in
Disaster-Prone Areas

Source: Gunawan, Parbowo, Solihin (2018); Guidelines for Assessment of Conditions and
Programs for Road Drainage Maintenance
RESULTS AND ANALYSIS
Determination of drainage handling programs in disaster prone areas, in the form of public
services, must be right on target (right goals), right benefits, and appropriate rules/laws (right law).
Accuracy is the main factor that determines the success of the government in carrying out this
activity, where the assessment of conditions will be very decisive in the handling program. To
assess the conditions that include physical and functionalities, the same perception (for the
surveyors) is needed through observing the physical drainage conditions (for example regarding
cracked, broken and collapsed). This is very much time-consuming and costly if it is not done with
visual observation. For this reason, it is necessary to do the same perception of the photo before
the surveyors observe the assessment of drainage conditions in the field. Figure 2 shows an
example of the photographs referred to a condition, while in Figure 3 the conditions and
parameters referred to the picture are explained.
Fig. 2

1. Good conditions
2. light damage,

3. moderate damage,

4. severe damage
After making direct observations in the field, then data on drainage conditions are inventoried for
later labeled, so that it can be read. For more details, see the following Table 1:

1. Wilayah Lembang

2. Wilayah Banten

From the data obtained, analysis was carried out by scoring the results of the field data by referring
to the scoring table to determine the drainage maintenance treatment program, and for more
details please see Table 2 below:
CONCLUSION AND RECOMMENDATION
Based on the foregoing description, it can be concluded that the handling program can be carried
out based on the percentage of damage (physical condition) and function of the drainage. Where
if the condition assessment decreases below 20% (X <20%) then Routine Maintenance is enough,
if the drainage condition decreases between 20 - 40% (20% <x <40%) then a Periodic
Maintenance is carried out, and for the condition decreases between 40% - 60% (40% <x <60%)
rehabilitation is needed, and finally for the condition decreases above 60% (x> 60%)
Reconstruction is needed. For more details, these programs can be explained in Table 3.

By inspecting and handling drainage maintenance programs in disaster-prone areas, it will

immediately help to restoring the physical condition of the area to the initial conditions. It will also
improve the recovery of social functions, community economy, because it will facilitate community
interaction. Thus it is hoped that there will be even distribution of regional growth through
economic development. This will be in line with number 2 and number 3 of the 9 Nawacita
Development Priority Programs, namely:
*) Make the government not absent by building clean, effective, democratic and trustworthy
governance, by giving priority to efforts to restore public confidence in democratic institutions by
continuing democratic consolidation through reform of party systems, elections and representative
institutions.
*) Build Indonesia from the periphery by strengthening regions and villages within the framework
of a unitary state.
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