THE COMMUNITY PROTECTION ON DISASTER MITIGATION PERSPECTIVE OF LOCAL GOVERNMENT LAW: AN EMPIRICAL STUDY

 According to mandate Act Number 23 the year 2014 on regional 
government that local governments had one obligation of 
community protection division for service. The role of community 
protection one of them is disaster mitigation. The objective that 
performs the functions of research is to know and how local 
government efforts in carrying out on obligatory basic service of 
disaster mitigation by community protection with the increasing 
number of cases disasters is empirical research in Indonesia. 
Method of juridical because use primary data obtained by 
interviews, FGD, and observation. Data analyzed to use the 
technique can draw interactive analysis to concluding. The local 
government efforts in carrying out on obligatory basic service 
disaster mitigation command regions conducted of disaster 
training, members always involved in the disaster, and always 
coordinate with an agency that has authority main of disaster 
perform the functions.Not ideally of percentage members and 
several people as well as the limited need to follow-up facilities 
from local government to realize community protection division 
for basic service.


INTRODUCTION
The Community Protection Unit (Satlinmas) is a group of people who are equipped with knowledge and skills to be able to carry out their duties and functions in disaster management, maintain security, tranquility and order and can play an active role in social activities. Regarding the formation of Satlinmas itself, it has experienced a long historical journey until now, before the formation of Satlinmas, it was often called Civil Defense (Hansip).
The formation of the Hansip organization began with the Dutch East Indies government to face attacks from Japan. The Dutch government formed an organization whose job was to protect the public from enemy air attacks. At that time it was known as LBD (Lucht Bescherming Dients) or Air Breaking Protection. These LBDs are formed from the central to regional levels which are coordinated by civilian government officials. Its activities include public information, reporting on enemy air raids, protection, undercover, fire fighting, first aid for accident sufferers, evacuation and others.
Furthermore, after the independence era, the Decree of the First Deputy Minister of Defense / Security Affairs No MI / A / 72/62 dated April 19, 1962concerning Civil Defense Regulations, until 1972 was born. to the Minister of Home Affairs confirmed by Presidential Decree No. 55 of 1972. Along with Presidential Decree No. 55 of 1972, there has also been Presidential Decree No. 56 of 1972 concerning the Improvement of Civil Defense Organizations and People's Resistance Organizations (Wanra) and People's Security (Kamra) in order to control implementation. people's defense and security system. When the defense was handed over to the Ministry of Home Affairs, its essence was still revolving around defense and security, the guard was assigned to mobilize the people for national defense activities, mobilizing civil society activities in national defense against the enemy. However, in its development after entering into the guidance of the Ministry of Home Affairs, civil defense units in their lives assist the social community in the form of environmental protection. The duties of security in the social community are to foster social order in the community, help the community when there are social activities such as death, celebration. , ceremonial and religious. Until the establishment of a public kitchen in a village when there is a disaster. This hansip has never undergone basic military training (latsarmil) and has not received proper direction from the Ministry of Home Affairs as the guardian of the guard. It was only in 2002 that Hansip changed its name to Community Protection (Linmas) to this day.
Even so, the change was only in the name label, the legal basis for its main duties, functions and roles was still the same. As an illustration, the main duties of security personnel when covered by the Department of Defense and Security include defense and security, while in Linmas it is interpreted as a function in providing protection to community.
The function of providing community protection is an activity that must be carried out by Linmas, thus guidance for Linmas since 2004 has been carried out by the local government under the Civil Service Police Unit (Satpol PP). This is in accordance with the contents of Law No. 23/2014 on Regional Government which states that affairs must fall under the authority of the provincial, district / city governments, including implementation of public order and public order including protection of the community.
In line with the passing of Law No. 32 of 2004 on Regional Government with Presidential Decree No. 55 of 1972 concerning the Improvement of Civil Defense Organizations and People's Resistance Organizations (Wanra) and People's Security (Kamra) in order to curb the implementation of people's defense and security system, it is deemed inappropriate. while Law No. 32 of 2004 on Regional Government emphasizes the protection and public order. For this reason, Ministry of Home Affairs submitted a request to president to revoke the Presidential Decree through Presidential Regulation No. 88/2014 concerning the Revocation of Presidential Decree No. 55 of 1972 Improvement of Civil Land Organizations and People's Resistance Organizations (Wanra) and People's Security (Kamra) in the context of controlling the implementation of the people's defense and security system so that Linmas could be further developed. Then came the issuance of Presidential Regulation No. 88 of 2014 concerning the revocation of Presidential Decree No. 55 of 1972 concerning the Improvement of Civil Land Organizations and People's Resistance Organizations (Wanra) and People's Security (Kamra) in context of curbing the implementation of the people's defense and security system, from then on there was a vacuum in the regulations regarding public protection and civil defense, with the revocation of Presidential Decree No. 55 of 1972, is the right moment to immediately reorganize the community protection unit so that its existence is more developed and its benefits can be felt by public (Gunawan:2015).
The rearrangement of Community Protection Unit (Satlinmas) should start from the regulation first, in Law 23 of 2014 concerning Regional Government and other regulations there are 7 regulations that define the role of Satlinmas using the word security, while the role of security is an absolute mandatory government affair as contained in the Law Law 23/2014 on Regional Government Article 10 Paragraph 1 states that there are 6 (six) absolute governmental affairs that fall under the authority of the central government, consisting of: 1) foreign policy; 2) defense; 3) security; 4) yustisi; 5) national monetary and fiscal; and the last is 6) religious affairs. Sixth (6) absolute functions are under the authority of central government to carry out and cannot be contested, while regional governments are given authority to take care of matters relating to obligatory and optional affairs. In accordance with Law 23/2014 on Regional Government Article 12 Paragraph 1, mandatory government affairs related to basic services as referred to in Article 11 paragraph (2) include: 1) education; 2) health; 3) public works and spatial planning; 4) public housing and residential areas; 5) peace, public order and community protection; and 6) Social.
Replacement of Act Number 23 the year 2014 on local government, had made a difference in administrative matters between the center and regions.When previous Act according to regulations, namely Act Number 32 years 2004 on local government as modified several times Act Number 12 years 2008 of changes in both the Act Number 32 years 2004 on local government, the administrative matters between the center and regions classified on administrative matters which is the authority of central and local authority which is administrative matters.Administrative matters for the local authority consists of obligatory all options.
Act Number 23 years 2014 on local government, article 12 verse (1) obligatory mentioned that one basic service may be local government.To create community protection, local government form organization, consisting of residents who prepared and provided with knowledge as well as skills one in implementing activities to disaster management and low disasters.The organization of unit community protection or (satlinmas).
Further arranged in Minister of Internal regulations (PERMENDAGRI)Number 84 years 2014 on the implementation of community protection, community protection unit (satlinmas) mentioned duty is helping in disaster handling security, help, peace, and public order, divided among others ready early rescue team and watchful, evacuation team, as well as the public kitchen.Indonesia is high with a disaster-prone.The disasters that occurred in Indonesia among them are earthquake and tsunami in Aceh, Jogjakarta earthquake and Lombok, earthquake and tsunami, a liquid faction in Central Sulawesi, and natural disasters landslides, flood or other to disaster management is needed to anticipate the impact of disasters wealth and life (hidaldo:2019). The national of disaster management form 1.586 some disaster for January to April 2019 caused hundreds of the victim.
Natural disasters can occur suddenly or through a process that takes place slowly. Some types of disasters such as earthquakes, it is almost impossible to predict accurately when, where they will occur and their magnitude, while some other disasters such as floods, landslides, drought, volcanic eruptions, tsunamis and weather anomalies can still be predicted in advance. Nonetheless, disasters always give a shocking impact and cause a lot of loss both in life and in material.
Disaster is defined as an event, or a series of events, as a result of natural phenomena and / or the result of human activities, which disturbs human life and livelihoods, is accompanied by environmental damage and causes helplessness of local potential and infrastructure, and requires assistance from other regions or from other countries by leaving routine procedure. Disaster came suddenly. Society in general is not ready to anticipate it, because natural signs are often absent for attention. Disaster symptoms are almost unpredictable technologically and sometimes take place very quickly. Until now, there has been no way to predict when a disaster will occur, especially earthquakes, so that in many cases, disasters always bring large numbers of victims. Early warning instruments from local governments are very minimal, and many regions do not have them.
One of the important aspects in tsunami disaster mitigation efforts is increasing community participation before the disaster (Marsh, W. 1991), (Republika, Harian, 2006). Community participation is defined as a process that involves the community. Community participation is defined as a way of interacting between two groups, or as a process in which environmental problems and needs are being analyzed by a responsible agency (Arimbi. 1993). The definition of public participation in general is the opening of direct communication links between government and society about a policy and vice versa open relationship between society and government on basis of policy. Public and private participation is carried out in an organized manner as usable assets, so that it can play a role in the distribution and assessment of humanitarian assistance needs.
The participatory approach has actually become a government policy in urban spatial planning. In PP No. 69 of 1996 concerning the implementation of rights and obligations, as well as forms and procedures for community participation in spatial planning, are regulated in matters relating to the implementation of community rights and obligations, forms of community participation, procedures for community participation and fostering community participation are regulated based on hierarchical levels government from the National level, Provincial level and Regency / City level. Community participation can be involved in reducing disaster risk in coastal cities, both in structural and nonstructural activities.
The role unit of community protection in disaster following the policy ofcommunity protection unit (satlinmas) performance needs to be improved to minimize the downward pull of the disaster to the occurrence.According to what has been stipulated in Regulation of Domestic Affairs Minister Number 34 years 2017 concerning the improvement of capacity in the member of community protection aimed of them that will advance their knowledge, skill, the formation of attitudes and behavior towards members of satlinmas and enhance the capacity of a member of satlinmas in carrying out tasks help of a disaster. A response to the result of research that was done in the first year gives her the need for strengthening the capacity of a member of satlinmas. In matters of disaster very urgent, in the capabilities of mitigation owned by a unit of protection of the community in each region are varied.
Community protection has a very important role in supporting public security, order and protection. Based on Permendagri No.84 of 2014 article 1 paragraph 1 Implementation of community protection is organizing and empowering community protection. In paragraph 3 it is then stated that the Community Protection Unit, hereinafter referred to as Satlinmas, is an organization formed by the Village / Sub-district government and consists of members of the community who are prepared and equipped with knowledge and skills to carry out disaster management activities to reduce and minimize the consequences of disasters, and participate in maintaining security, community peace and order, community social activities. Based on the mandate, Linmas is an important social organization in helping to create security and order in the regions. One of the areas that empowers the community in satlinmas of Surakarta(Wulan&Joko P:2018).
The community protection is a unit under Civil Service Police Unit which plays a role in helping to create order and security in their respective neighborhoods. Satlinmas are located in every village. His close proximity to the community is expected to be able to help the local government, the Police and the TNI. Optimizing the role of Satlinmas is needed as an effort to strengthen community participation in protecting their own environment.
The role of the Community Protection Unit in assisting disaster management is regulated in Law Number 24 of 2007 concerning Disaster Management, particularly in Article 4 Letter a, Article 6 Letter b, and Article 8 Letter b, which states that the government's responsibility in implementing disaster management includes protection of the community from the impact of disaster.
Minister of Internal regulations(PERMENDAGRI)explained that obligations of the provincial government, county, the city should implement a community protection unit of capacity building (Grindle: 1997) (Milen: 2004).But in some regions need to implementation of regulation be increased to realize what was owed the obligatory to create basic services particularly in terms of community protection.

THE OBJECTIVE OF RESEARCH
The formulation of how local government efforts to carry out obligatory basic services for disaster mitigation community protection by unit?

METHOD OF RESEARCH
This study the juridical is empirical research was the primary and secondary data.Primary data pattern (Setiono (2005), of behavior law enforcement, is to identify the research is the personnel of community protection. local government officials, Indonesian Red Cross (PMI), Regional Disaster Management Agencies (BPBD), disaster, and affected communities.
Technique the research data collection: it has two data can the data wanting in primary and secondary data.Primary data is the data directly from sources. In this study, the primary data was obtained directly from research locations through interviews, Focus Group Discussion (FGD). Data consisting of primary law, material secondary law, terrier law, and materials.Analysis technique using a technique analysis Model of Interactive includes: (1) data collection; (2) reduction data; (3) meal data and (4) conclusion.

RESULT AND DISCUSSION
Under the terms Article 9 of Act Number 23 the year 2014 on regional government, classifications administrative matters consist of absolute administrative matters, general and administrative matters.Affairs of absolute are administrative matters that arrangements are the central government. The government is administrative matters that are divided between central government, provinces, and districts/city government handed up to the state of the implementation of the regional autonomy area. The government affairs general is administrative matters function for president as head of government.
Minimum standards of service (SPM) are on type and quality of primary care to every resident minimal. The obtained in primary care is part of the obligatory government in the district (Pramono: 2017). The SPM positioned to answer important in local government, especially in the provision of basic services that rise in the creation of the welfare state of people. The welfare public is guaranteed by constitutional. The minimum standards must ensure access to get the service the basis of regional governments in accordance with the measurement set by the government.
According to Minister Number 6 the year 2007, article 4 is part of basic service and having characteristics as obligatory services, very fundamental obtained by people to at least, guaranteed supply by the constitution and international convention, supported new complete data and information as well as yielding material gain.On any to administrative matters about basic service is protection of Indonesia is vulnerable to natural disasters, the relating to the geographical location of Indonesia located between two large and situated in the region of plate tectonics. Indonesia in plate tectonics or also included in the ring of fire,meaning Indonesia vulnerable to earthquake tsunami and can give rise.Ring of fire clears the relation of mountain activities from Indonesia to Japan, to us from Alaska through western until the united south (Pertiwi:2020).Ring of fire called as circles magma large and was of a circle Indonesia has the fire. The tectonic movement has caused the earthquake, the volcanology is active and geology that zone disaster-prone earthquake and tsunami(Sutopo:2020).
It was mentioned in previous on meeting the basic service protection division for the community especially of disaster on different regions having state of being.Based on the results of the study percentage ideal comparison of community protection unit with community is 1: 1000 (one member of community protection, number of people to thousand).The comparison is expected to offer a service to community following the role of function of community protection unit.The number of current public protection units not based on the sort of ideal sense, it is, of course, it requires attention from local government as an effort to give at least basic service to the community in terms of community protection.
Based on Act Number 24 years 2007 on disaster management, it was stated that the preparedness was done to ensure the efforts quickly and correctly in ahead of the event.In the effort to reduce disaster there are 3 (three) stages, in pre-disaster before touched, when disaster and post after a disaster calamity senior in the stage of indispensable adequate resources and can be functioned especially on the disaster.
Unit of community protection recruited voluntarily by local governments have an important role to intended disaster both pre or post-emergency disaster are expected to reduce the risk that has been conducted by the disaster. The recruitment local government is to protect people from members of the local community that is expected to be more aware of the unit of the characteristic of community protection is represented.Based on Ministerial Regulation Number 34 the year 2017 about enhancing the protection of communities.Focus on research is the capacity building of community protection in the field of disaster. In ministerial regulation the obligations of local governments to conduct an action in matters of disaster (piranejad:2020).

Tabel 1. Result of Survey Nu.
Survey Result

The mass of working members of the community protection unit
The average working mass of members of community protection unit is over five (5) years occupying the percentage of thirty percent (30%) and the remaining seventy percent (70%) of the working mass over 10 years.

Participation in disaster training activities
During his time as a member of the community protection unit, he had participated in disaster training activities. The training activities are arranged in stages and take turns among members of the community protection unit and it is ensured that all members receive training in stages.

3.
Institutions organizing the training Institutions organizing training activities are internal from the civil service police unit that is waiting for him, the Indonesian National Army (TNI), police (POLRI), social services, the Indonesian Red Cross (PMI), the Regional Disaster Management Agency (BPBD).

4.
Types of training activities Types of training activities include disaster management training activities, ranging from pre-disaster, disaster emergency response, and post-disaster. Types of activities in the form of mitigation of fire disasters, floods, landslides, earthquakes in accordance with the occurrence of disasters that often befall certain regions.

5.
Involvement in disaster relief The more frequent the potential for natural disasters the involvement of members of the community protection unit in their role in carrying out disaster assistance tasks is always involved in the preaching process. In disasters that often occur in the middle of the community for example fires and floods. 6.
Carry out its role in disaster prevention efforts In its role of carrying out efforts to prevent natural disasters, members of the community protection unit who come from elements of the community provide massive socialization to the community in their area regarding efforts and concrete actions that can prevent disasters. 7.

Involvement in early detection of disasters
In carrying out efforts to detect natural disasters, members of the community protection unit carry out patrols within 1 x 24 hours in turns divided into 3 (three) shifts. Each patrol shif at vulnerable points that have the potential to appear disasters, such as the river. 8.
Active community participation in disaster Active participation from the community is in the form of the community's role in providing information in the event of a disaster. The report can be given when the patrol officer or officer is in the village office. Active community participation in the event of a disaster also involves making a humanitarian contribution to disaster victims.

9.
Cooperation with related agencies on disaster early detection Cooperation at the time of early disaster detection with related institutions, for example in the installation of flood early detection devices by the Regional Disaster Management Agency (BPBD), the picket officers from the community protection unit will always check the equipment. 10. Follow-up of reports on the occurrence of Follow-up on reports of disasters from the community is a picket officer member of the community protection unit will disasters from the community check and ensure the truth of the disaster, and assist in evacuating victims and assisting with environmental safeguards and coordinating with other institutions that have the primary role in the subscription of the disaster. 11. Role during disaster response that has been done The role of community protection units during natural disasters is to evacuate disaster victims both property and lives and help to safeguard the environment of disasters.

Form of cooperation with other institutions in the event of a disaster
Cooperation with other institutions, for example, when a flood occurs, members of the community protection unit will work together with the Indonesian Red Cross to evacuate victims, help rescue the victims' property.
13. Availability of facilities and infrastructure in disaster relief Availability of facilities and infrastructure owned by the community protection unit is in the form of communication devices, cell phones, handy talkies, websites, regional patrol vehicles. The availability of facilities and infrastructure is limited to communication tools because returning to the task and function of community protection is to provide assistance to the frontline for disaster relief, so that facilities and infrastructure are limited to communication tools. 14. Participation in the post-disaster stage The participation of members of the community protection unit in the post-disaster stage is to help collect data on the impact of disasters, such as reconstructing and rehabilitating due to disasters. 15. Involvement with relevant agencies in carrying out postdisaster functions At the post-disaster stage, the institutions assisted by community protection unit officers carry out reconstruction and reconciliation due to disasters are social services, local governments to calculate the number of losses due to disasters, and provide social assistance to victims of natural disasters. Source: Primary Data, 2020 Length of employment members of community protection minimum has massdevotion for 5 (five) years and average dominated mass work is more than 10 (ten) years.It is based on historically a member of a unit of civil defense community protection is member formerly functions as are volunteers from the residents implement voluntarily to the action of community protection.
Residents who have devoted themselves to voluntary public protection unit to follow disaster and capacity building. The results are members of community protection have followed the training of disaster. The training is arranged in stages and take turns among members of community protection as well as confirmed all members received training in steps. The mean of training had been carried out by members of the community protection is 2 (two) to 4 (four) times in 1 (one) year with training activities. The involvement of members of community protection in disaster needs deftness in disaster, leading to needing protection capacity building members of people. Increased capacity to be implemented by local governments and cities conducted lectures, activities, and discussion of disaster management action is good the calamity, emergency after a disaster.On the capacity-building members of community protection in disaster training activities in accordance with calamity often on from each of them.These activities carried out by public order police squad supervising of community protection in each region and reducing these activities by the regional disaster (BPBD), national Search And Rescue Agency (BASARNAS), social agency, Indonesian Red Cross (PMI), the National Army of Indonesia (TNI) and police (POLRI).
Disaster either natural disasters and natural disaster to disaster non-rise in line with potential growth of population density implied to the environment is prone to flooding (li:2019), global warming effect the potential natural disaster and intensive involvement of community protection of its role in the discharge of embedded disaster getting involved in this.The participation of protection people will be embedded seemed good to the disaster.
To support members of disaster community protection and get the members training of disaster. Management training activities include the calamity with conduct the socialization activity to calamity gradually and sustainable. The response to disasters or disasters is going on evacuation flood victims, earthquake, and tsunami. At the fire, emergency, and how the officers can minimize wealth as well as lives of risk.Disaster after members of community protection help recording how much material losses by the disaster.
The involvement member of a unit of community protection in carrying out an effort to early detection natural disasters, members of a unit of community protection carrying out a patrol within 1 x 24 hours in turns of which is divided into 3 (three) Schiff.Each patrol will work in one at locations prone to the disaster which has the potential to appear, like example the door of air. The team furnished with bring a means of communication to facilitate coordination with the urban village and structurally to the government of the local area.
The early detection of disaster the role of people can be manifested by the active participation of pre-disaster. The participant active included provide information when disasters.The report can be given at the time ofpatrolmen and officers are in the village office.Active participation of the community in the event of a disaster and humanitarian disaster. The contributed to victims of community efforts to prevent disaster were also can be done by other institutions. The cooperation in the early detection of disaster to related institutions that is as an example in the installation of flood early detection by the regional disaster management so as fighters from community protection of unit will have to check the device.
From the results of patrols and reports of disasters, the next action taken by members of the community protection unit with other institutions is to report the potential of disaster to relevant institutions. Follow-up on disaster reports from the public is that picket officers members of the community protection unit will check and ensure the truth of disaster, and assist in evacuating victims, assisting in safeguarding the environment, and coordinating with other institutions that have the primary role in handling disasters.
In the next stage, namely during a disaster or emergency response, the role of community protection unit is to evacuate victims of both properties, lives, and help to safeguard the environment of disaster. In this phase, emergency response to save lives becomes the main objective and evacuate the victim's property. To minimize the impact of disasters. The collaboration with other institutions during a disaster emergency response, for example, when a flood occurs, members of the community protection unit will work together with the Indonesian Red Cross (PMI) to evacuate victims, assist in saving assets from victims, as well as institutions related to disasters.
The participation of members of the community protection unit in a post-disaster stage is to help collect data on the impact of disasters, such as reconstructing and rehabilitating due to disasters. In the post-disaster stage, institutions assisted by community protection unit officers perform reconstruction and reconciliation due to disasters is the social service, local governments to calculate the number of losses due to disasters and provide social assistance to victims of natural disasters.
The availability of facilities and infrastructure owned by the community protection unit is in the form of communication devices, mobile phones, handy talkies, websites, regional patrol vehicles. The availability of facilities and infrastructure is limited to communication tools because returning to the task and function of community protection is to assist in the frontline for disaster relief, so that facilities and infrastructure are limited to communication tools.
Based on the above explanation the duties and functions of the community protection unit as an assistant in the field of hate with related agencies that carry out the main function of disaster relief, so that the community protection unit is not the forefront of the disaster management function. However, community protection members who are representatives of elements from each region both villages and villages have strong emotional ties in each region were members of the community protection unit come from. In addition to elements of representation from each village or village area, members of protection the community also empirically knows the character of the population and geographically funds each area.
The limitation of members of Satlinmas from internal and external elements encourages the need for cooperation from elements involved, such as regional disaster management agency (BPBD), national Search And Rescue Agency (BASARNAS), firefighter (DAMKAR). Many factors hamper the performance of community protection. As for a model of community protection management that is responsible for involving BPBD, BNPB , SAR, community, and other stakeholders to participate in implementing the disaster mitigation function.

CONCLUSIONS
Local government efforts to carry out obligatory basic service on mitigation by unit community protection is: 1. Increased understanding and skill of unit of activities which protect people through: (a). the training that was held regularly and stages by unit public order police and institutions as Indonesia Red Cross (PMI), Regional Disaster Management Agency (BPBD), police (POLRI) and the Indonesian Military (TNI), and (b) doing embedded in institutions having a major function of handling disasters. 2. Increased function embedded in the pre-disaster, disasters, and emergency post-disaster. 3. Increased cooperation and coordination in tackling with the Indonesian Red Cross (PMI), Regional Disaster Management Agency (BPBD), police (POLRI), and the Indonesian Military (TNI), and Department of fire service (DAMKAR).

RECOMMENDATION
1. Furnish of facilities and infrastructure of mitigation at the level of the unit of community protection at the regional level in accordance with the quality and quantity of at least the basic needs of the disaster.