THE ROLE OF INTEGRATED CADASTRE DATABASE IN DISASTER …

THE ROLE OF INTEGRATED CADASTRE DATABASEIN DISASTER RISK MANAGEMENT

Kusmiarto*

IntisariIntisariIntisariIntisariIntisari: Mengingat kompleksnya masalah bencana alam di Indonesia, pengelolaan resiko bencana yang efektif memerlukaninformasi yang lebih komprehensif. Basis data kadaster yang menggunakan batas persil bidang tanah sebagai unit dasar pemetaandapat memberikan informasi yang sangat rinci mengenai elements at risk. Institusi-institusi yang berwenang dalam pengelolaanresiko bencana tidak mudah dalam mengakses data tersebut. Penelitian ini berusaha untuk mengatasi masalah di atas denganmendisain skema database kadaster yang lebih terintegrasi. Data hasil survey di lapangan digunakan untuk menguji skemacadastre geo-database. Evaluasi dilakukan melalui wawancara mendalam dengan potential users. Hasil dari evaluasi menunjukanbahwa database kadaster yang telah dibuat sudah cukup baik sebagai salah satu solusi yang dapat digunakan dalam kegiatanpengelolaan risiko bencana.Kata kunciKata kunciKata kunciKata kunciKata kunci: Kadaster, Disain Geo-database, Element at Risk, Gempa Bumi.

AbstractAbstractAbstractAbstractAbstract: Due to the complexity of the natural disaster in Indonesia, the effective disaster risk management should havecomprehensive information. Cadastre database using parcels as basic mapping units constitute the detailed information relatedto elements at risk. It is not easy for the institutions in charge with those disaster risk management to access the detailedinformation. The research is aimed at overcoming the above problems that is by designing the integrated cadastre databasescheme. The survey results are use to test the geo-database cadastre scheme. The evaluation is done by in depth interview tothe potential users. The result of evaluation showed that the cadastre database made is good enough to solve the abovementioned problems.KeywordsKeywordsKeywordsKeywordsKeywords: cadastre, design, geo-database, elements at risk, earthquake.

*Kusmiarto, Alumni Institute of Geo InformationScience and Earth Observation, Enschede, Netherland.Saat ini Asisten Dosen Sekolah Tinggi PertanahanNasional, Yogyakarta.

A. Introduction

Given the complexity of natural problemswhich might cause disaster in Indonesia, amore integrated database of element at risk isnecessary. In disaster management activities(e.g. mitigation planning, risk assessment, lossestimation on the hazard areas, environmentalprotection, save lives and property effectivelyand eff iciently due to disasters) need detailedinformation of the element at risk. Cadastredatabase which uses parcels boundary as basis

mapping unit actually provides detailed infor-mation of elements at risk, but the authoritieswho deal with the disaster management still notuse this database optimally yet. Inconsistency ofgeometric accuracy of spatial cadastre data, thedifferent of coordinate systems and differentformat data as well as different layers of spatialdata are the problems in the procedure of dataexchange among the institutions.

There are two institutions provide cadastredata in Indonesia. They are BPN RI (NationalLand Agency of Republic Indonesia) and Taxoff ice. BPN RI provides cadastre data that arerelated to legal cadastre. Tax off ice provides ca-dastre data that are related to f iscal cadastre. Theyprovide cadastre data by using different struc-

221Kusmiarto: The Role of Integrated Cadastre Database ...: 220-234

ture database, different level of spatial accuracy,different coordinate systems and different lay-ers of spatial data. Those facts cause the diff i-culties in integration process. Ideally, legal andfiscal cadastre database should be integrated intoone unit database, so the database is ready to beused not only for the cadastral purposes but alsofor various purposes and interest.

B. Cadastre Data

There are several definitions of cadastre. Ca-dastre is a methodically arranged public inven-tory of data concerning properties within a cer-tain country or district, based on a survey of theirboundaries.(Zevenbergen, 2004)1,. Other cadas-tre def inition from (FIG, 1996)2, A Cadastre isnormally a parcel based, and up-to-date LandInformation System (LIS) containing a record ofinterest in land (e.g. rights, restrictions and re-sponsibilities). It usually includes a geometricdescription of land parcels linked to other recordsdescribing the nature of interest, the ownershipor control of those interests, and often the valueof the parcel and its improvements. It may beestablished for f iscal purposes (e.g. valuation andequitable taxation), legal purposes, to assist inthe management of land and land use (e.g. forplanning and other administrative purposes), andenables sustainable development and environmen-tal protection.

Tax off ice uses SISMIOP (The Property TaxInformation Management System) and SIG-PBB(Geographic Information System for Land andBuilding Taxes) to manage the database of prop-erty (Direktorat Jenderal Pajak, 2002)3. SISMIOPwas particularly designed to handle attribute data

related to land and building taxes which is man-aging around 84 million tax objects (parcels) inIndonesia. On the other hand SIG-PBB has beendesigned to manage spatial data of land andbuilding tax objects. Each tax object is assigneduniquely with a NOP (Property Identif icationNumber). This number has an operational ad-vantage since there will prevent duplication ofland and building tax object identity.

Very detailed information of the building(Structural and Non Structural elements ofbuilding) is developed by tax off ice. The Infor-mation related to the building in tax off ice data-base consists of three main data. They are maindata component of building, building materialcomponent, and building facilities components.This information is very useful in determiningvulnerability of buildings and calculates the valueof risk of a certain building caused by a certainmagnitude of earthquake.

In carrying out their duties and functions,the National Land Agency (BPN) currently hasthe types of database as follows:a) Spatial data (Base map and thematic map

such as Registration map/Parcel map, LandUse map, Land Value Map, etc).

b) Textual data (attribute data of land parcelsconsists of legal information of parcels as wellas the history of the land parcel).Cadastre database in National Land Agency

(BPN RI) operationally managed by the LandOff ice (Local Off ice) in the district/city level,Provincial Off ice in the Provincial level and theBPN RI in the Central level (National Level)(Perpres No.10, 2006)4. Each level has the func-tion and responsibilities in accordance with theirrespective level. National Land Agency has be-

1 Zevenbergen. (2004). A Systems Approach to LandRegistration and Cadastre. Nordic Journal of Surveyingand Real Estate Research , Vol.1.

2 FIG. (1996). The Bogor Declaration. Bogor: UnitedNations Interregional Meeting of Experts on the Cadas-tre.

3 Direktorat Jenderal Pajak. (2002). KEPUTUSANDIREKTUR JENDERAL PAJAK. Jakarta.

4 Perpres No.10. (2006). Peraturan Presiden RepublikIndonesia Nomor 10 Tahun 2006 Tentang Badan PertanahanNasional. Jakarta.

222 Bhumi No. 38 Tahun 12, Oktober 2013

gun to construct land database since 1999through the Land Off ice Computerization(LOC) (Ruhkyat, 2008)5.

The parcel map of land off ice uses TM3°(Transverse Mercator 3 degrees) Projection Sys-tem. This coordinate system is used as standardcoordinate system in National Land Agency(PMNA/KBPN No.3, 1997)6. TM3° is a projectionsystem which is derived from UTM.

The main activity of National Land Agency island registration. There are two land registrationsystems in Indonesia. They are systematic andsporadic (PP No.24, 1997)7. Systematic land regis-tration is an activity registration land parcels forthe f irst time carried out simultaneously whichincludes all objects that have not registered in ter-ritory or part of the territory of a village, whilesporadic system is the land registration activitiesfor the f irst time on one or several object in theregion or parts of a village in individual or mass.

C. Geo-Database Design

Geo-database design is based on a commonset of fundamental GIS design steps. GIS designinvolves organizing geographic information intoa series of data themes layers that can be inte-grated using geographic location. So it makessense that geo-database design begins by identi-fying the data themes to be used, then specify-ing the contents and representations of eachthematic layer. Frequently, the geographic rep-resentations will be predetermined to some de-

gree by the available data sources for the theme.If a preexisting data source was collected at aparticular scale and representation, it will oftenbe necessary to adapt the design to use it.

D. Element at Risk

Element at risk are all objects, buildings, per-sons, animals, activities and processes that maybe adversely affected by hazardous phenomena,in a particular area, either directly or indirectly.This includes Physical elements, Population,Essential facilities, Socio-Economic aspects,Transportation facilities, Economic activities, Lifelines, and Environmental elements. The classi-f ication of element at risk is different depend-ing on the countries, the setting (urban, rural,etc.), objective of the element at risk, the scale,and available resources.

Element at risk is one of the main compo-nent in risk analysis beside hazard and vulner-ability. Hazard assessment quantif ies the physi-cal character of a hazard, including probabilityof occurrence, magnitude, intensity, location andinfluence of geological factors (Gulati, 2006)8.

Vulnerability is defined as the degree of loss to agiven element at risk or set of such elements re-sulting from the occurrence of a natural phe-nomenon of a given magnitude an expressed ona scale from 0 (no damage) to 1 (total loss) or inpercent of the new replacement value in the caseof damage to property (UNU-EHS, 2006)9.

The interaction of element at risk and haz-ard def ines the exposure and the vulnerabilityof element at risk. Exposure indicates the de-gree to which the elements at risk are exposedto a particular hazard. The spatial interaction be-tween the elements at risk and the hazard are

5 Ruhkyat, M. (2008). Aspek Hukum Teknologi Digi-tal Dan Dokumentasi Pertanahan. Jakarta: Data and Informa-tion Center of National Land Agency of Republic Indonesia.

6 PMNA/KBPN No.3. (1997). Peraturan MenteriNegara Agraria/Kepala Badan Pertanahan Nasional Nomor3 Tahun 1997 Tentang Ketentuan Pelaksanaan PeraturanPemerintah Nomor 24 Tahun 1997 Tentang PendaftaranTanah. Jakarta.

7 PP No.24. (1997). Peraturan Pemerintah No. 24Tahun 1997 Tentang Pendaftaran Tanah. Jakarta: Govern-ment Of Republic Indonesia.

8 Gulati, B. (2006). Earthquake Risk Assessment ofBuildings : Applicability of HAZUS in Dehradun, India.Enschede: ITC.

9 UNU-EHS. (2006). Components of Risk, A Compa-rative Glossary. Bonn, Germany: UNU-EHS No2/2006.


depicted in GIS by simple map overlaying of thehazard map with the elements at risk map.

Elements at risk study nearly always focuseson specif ic groups of element at risk such asbuildings or population. In this research, the el-ement at risk database will be built only base onthe element at risk data derived from cadastredatabase.

E. Building’s Physical Characteristicsand Its Response to Earthquake

Building Vulnerability of structure can bedefined as probability of physical loss on build-ing when particular shaking occur which de-pends on aggregate performance of its compo-nents and characteristic of hazard and of char-acteristic of its ground where its stands (Thapa-liya, 2006)10. (Siddiq, 2006)11 describe the com-posite building material in Indonesia and theseismic performance of construction materialwhen earthquake happened.

Table 5-1. Building composite and structure, asthe resistance to earthquake

Source: (Siddiq, 2006)

F. Disaster Risk Management

Disaster Risk Management is the systematicprocess of using administrative decission, orga-nization, operational skills and capacities toimplement policies, strategies and coping capaci-ties of the society and communities to lessen theimpacts of natural and related environmentaland technological disasters. (Westen, C. V.,2009).12 Traditionally the process of Disaster RiskManagement was presented as a cycle, in whichthe various phases would follow each other un-til the next disaster event would happen. It in-volves several phases: Prevention, Preparedness,Relief/Response, Recovery and Reconstruction.The main point important in the disaster riskmanagement is the use of spatial disaster riskinformation. Effective disaster risk managementdepends on the informed participation of allstakeholders. The exchange of information andeasily accessible communication practices playkey roles. Data is crucial for ongonging research,national planning, monitoring hazards andassesing risks. The widespread and consistentavailability of current and accurate (geo) data isfundamental to all aspects of disaster risk reduc-tion. (UN-ISDR, 2004).13

G. Study area

The location of study area is Palbapang Vil-lage. The study area extent in between 110° 18’40’’ and 110° 20’ 15’’ East Longitude and between7° 53’ 35’’ and 7° 55’ 15’’ South Latitude. PalbapangVillage has been selected as a study area due tothe densely populated mix of urban and ruralcommunities, variation of building type, the highimpact caused by the earthquake (highest num-ber of damaged buildings among all village lies

10 Thapaliya. (2006). Assessing Building Vulnerabilityfor earthquake using field survey and development controldata: A Case Study in Lalitpur Sub Metropolitan City, Nepal.Enchede: Urban Planning and Land Administration. ITC.

11 Siddiq, S. (2006). Bangunan Tahan Gempa BerbasisStandard Nasional Indonesia . Vol 8: 18 p.

Type of Material andStructure System Buildings

Suitability of LateralEarthquake Expenses

InformationVeryGood Good Bad

VeryBad

Walls Brick/Pure Brick √

Heavy Weight,Brittle, Not

DuctileBrick with reinforcement(Confined) √ √

Moderateweight,

ModerateBearing

Capacity,ModerateDuctility

Conblock with reinforcement(Confined) √ √

Reinforce Mansonry (RM) √

Timber frame and brick wallwith anchors √ √

Wood frame structure withbracing (X-Brace) √

MinimumWeight,

Moderate tohigh Bearing

Capacity, HighRigidity and

Ductility

Reinforced concrete framestructure with bracing √ √

Rigid Steel frame structure √

12 Westen, C. V. (2009). Disaster Risk Management,in Multi Hazard Risk Assessment (Guide Book). Enschede.

13 UN-ISDR (2004). Living with Risk, United Na-tions International Strategy for Disaster Risk Reduction.


in Bantul Sub-district) and the data availability.The systematic land registration has not beenimplemented in the Palbapang Village. The landparcel map of Palbapang Village in the land of-f ice covers low percentage of the total land par-cels in the study area. The land parcel map de-veloped by land off ice contains only the regis-tered land parcels, the ones equipped with landcertificates. In most of cities in Indonesia, thereare many more unregistered land parcels thanthe registered ones. For completing the rest ofuncovered parcel data, it is needed additionaldata from tax off ice, to build an integrated ca-dastre database. It is appropriate to choosePalbapang Village as the study area. Hopefullythe result of the research is applicable for othersareas.

At the study area, a deadly tectonic earth-quake occurred on May 27, 2006. This deadlyearthquake caused victims of people and build-ings. Media Center of Yogyakarta reported onJune 17, 2006, victims died in Yogyakarta andCentral Java is 5.760 people, injured 37.349people, 145.929 houses were collapsed caused bythis earthquake. According to (DMC, 2006)14,the level of building damaged in Palbapang var-ies from collapsed and heavy damaged. 1,784buildings were collapsed and 1,430 heavy dam-aged with the total of buildings are 3,214. This isa highest number of damaged buildings amongall village lies in Bantul Sub-district.

H. Collecting Data

Quick Bird satellite image (Recorded 22nd

April 2010) which covers the study area was or-dered from Digital Globe. Parcel map in digitalformat was collected from the land off ice (LandOffice of Bantul District). The land parcel map

developed by The Land Office contains only theregistered land parcels, the ones equipped withland certif icates. Land Office uses this map asbase map to maps or plots newest registered orcertif icated parcels. This map has no topologyand many inconsistencies (e.g., streets are oftendigitized multiple times for different layers; newhouses overlay old ones).The parcel maps fromtax off ice were collected. Tax off ice usually callsit as block map. There are 82 block maps fromtax off ice that were collected. These maps wereupdated by tax off ice in 1997 (after earthquake).Although tax off ice has block map in digital for-mat, unfortunately the block maps that wereobtained from tax off ice are still in format ana-log (Paper Map), it is because the diff iculty inthe data access permission. The block maps wereconverted to the digital format through the scan-ning and digitizing process. The scanned blockmaps were geo-referenced base on the coordi-nate contained in the maps. An intensively workswere done to geo reference and digitize the blockmap. Measurements using GNSS-CORS methodwere conducted to obtain high accuracy GCPs.TRIUMPH-1 JAVAD GNSS receiver was used asa RTK (Real Time Kinematic) GNSS for surveymeasurement. The nearest GNSS-CORS base sta-tion is located at Bantul Land Off ice Building,approximately 1 km from the study area. Thisbase station was used as reference station dur-ing GCPs Measurement. Ground control pointsare required to validate and to correct the Quick-bird imagery.

Land parcel use derived from information inthe tax off ice block map and satellite image in-terpretation. Land parcel use data were verif iedby discuss with Chief of Dusun (Kadus) andVillage Officer, who know well the condition ofland parcel use in Palbapang Village with inter-active map on the screen computer. Field surveyon the specif ic parcel/object also was used as amethod for verif ied the parcel use map that was

14 DMC. (2006). Laporan Pendahuluan District Man-agement Consultant. Yogyakarta: District ManagementConsultant.


built base on satellite image interpretation.The building footprint can be identif ied

clearly on the quick bird satellite image, so inthis research the building footprint was obtainedbase on screen digitations method on the georeferenced quick bird satellite image. Buildinguse or in other term as building occupancy classis derived from parcel use map. The parcel usemap can be used to derived the building infor-mation especially information related to thebuilding use. Spatial Join in overlay analysis toolsin Arc GIS program can be used to join parcelattribute and building footprint. The buildinguse or building occupancy class and building sizecan be used to estimate the number of occupantsin a certain individual building. Unfortunately,textual database developed by tax off ice whichis consists of detailed information related to thebuildings (structural and non structural ele-ments of building) cannot be access during thef ieldwork. To determine the building informa-tion, survey on buildings were done in this stage.In this research building inventory survey formcreated by (ADPC, 2009)15 was used in the build-ing survey. There are 500 buildings were sur-veyed by using Stratif ied Purposive Sampling.Stratif ied Purposive Sampling is the method oftechnical sampling with using certain consider-ation. In this approach, a number of buildingswere selected in the each Dusun (Sub Village)with taking sampling about 50 buildings for eachDusun. Textual database of building aid fromJava Reconstruction Fund (JRF) that was down-loaded from (Rekompak-JRF Official Site, 2010)16

is used as additional information of buildingscharacteristics. It consists of specif ic buildingtype that was built after earthquake 27th May2006. There are no coordinate data in JRF data-base. To determine the coordinate position ofthis JRF database, f iled survey for buildings us-ing Handheld GPS were conducted.

The quality assessment of integrated parcelmap was conducted by using parcel topologyvalidation tools in Autodesk Map Program. Cus-tomized program in Autodesk Map (Ajd-Sur-veyor) has been used to check and to correctthe errors in the integrated parcel map. Withthis program, errors of layers, errors of parcelobjects (duplication parcel object, short object,dangling object, crossing object, undershoot,overshoot), errors of types of entity, errors ofduplication of Parcel Identif ication Number(NIB), errors of parcel without NIB can be iden-tif ied automatically. The program may automati-cally correct many errors in the integrated par-cel map. Additional manual correction is usedto correct the rest of errors that cannot be cor-rected in auto correction.

I. Design Cadastre Geo-Database

The process of designing cadastre databasewas conducted by using Arc-GIS DiagrammerSoftware. ArcGIS Diagrammer is a productivitytool for GIS designer to create, edit or analyzegeo-database schema. Schema is presented aseditable graphics in an environment familiar tousers. Essentially Arc-GIS Diagrammer is a vi-sual editor for ESRI’S XML (Extensible MarkupLanguage) Workspace Documents which arecreated by Arc-Catalog, the management appli-cation in the Arc-GIS Desktop product suite.XML is a set of rules for encoding in machinereadable form. XML is an extension of HTML(Hyper Text Markup Language) which is a stan-dard language in internet tacking. The differ-ences between XML and HTML are XML was

15 ADPC. (2009). Elements at Risk Mapping, Basemapand General Building Stock. 4th Regional Training CourseGIS for Disaster Risk Management – Level II. Bangkok.Thailand: Asian Disaster Preparedness Centre.

16 Rekompak-JRF Official Site. (2010). Rekompak-JRF.Retrieved September 10, 2010, from http://www.rekompakjrf.org/index.php?act=listkpqs&prop=34


designed to transport and store data, with focuson what data is, HTML was designed to displaydata, with focus on how data looks.

There are two main steps in designing cadas-tre geo-database. The f irst step is developingmodel diagram, and the second step is imple-menting the diagram that was created. In thedeveloping model diagram in developing themodel diagram created feature datasets, featureclasses, raster datasets, tables, relationships be-tween features, and the relationship betweenfeatures of the table. In the implementation ofthe diagram that was created, performed errorchecking, exported to XML and generate the Arc-GIS environment by importing the XML file thatwas created to the Arc-Catalog. In the Arc-Cata-log, a f ile geo-database should be created beforeimporting the XML f ile. After XML f ile has beenimported, all empty dataset (feature classes, table,and relationship) appears in catalog tree in theArc-Catalog program. To f ill this empty dataset,the f iles in shp format that have been preparedare loaded by using the simple data loader in theArc-Catalog.

J. Result and Discussion

Parcel maps from tax off ice uses UTM coor-dinate system. Parcel map from land off ice usesTM3° coordinate system. To build an integratedparcel map, both of them should be integratedin the same coordinate system. In this case UTMcoordinate system is used to integrate both par-cel map from tax off ice and parcel map fromland off ice. Based on UTM zone, Palbapang vil-lage is located in 49 South and based on TM3°zone, Palbapang village is located in zone 49.1.The transformation process use the projectionand transformation tools in Arc GIS software.Parameters of transformation are used in theintegration process. Land use map was createdin large scale (parcel based mapping unit) or itcan be called as Parcel use. Parcels use map was

created based on annotations described in taxoff ice’s block map and interpretation on theQuick Bird satellite image. The classif ication ofparcel use is based on the standard classif ica-tion in the Land Office.

The parcel use map can be used to derivedthe building information especially informationrelated to the building use. Spatial Join in over-lay analysis tools in Arc GIS program can be usedto join parcel attribute and building footprint.Building use information can be used to esti-mate the number of occupants in a certain build-ing. The study on estimating building occupantsbased on building use has been done by (Budiar-jo, 2006)17. The study is the approach of architec-tural space requirement for estimating the num-ber of building occupants from the area of build-ing space using the norms or standards of archi-tectural design.

Information of buildings is needed to deter-mine the vulnerability of buildings against earth-quake. Information of building (structural andnon structural) also can be used to estimate thevalue of loss caused by an earthquake. Since thedatabase related to the information of buildingsin the study area cannot be obtained from taxoff ice, researcher use direct survey to the build-ing with stratif ied purposive sampling method.Stratif ied purposive sampling is the technicalsampling with using certain consideration. Theparameter used in the f ield are based on thehouse that rebuilt by JRF, POKMAS (SocietyGroups) and self supporting. In this approach, anumber of buildings were selected in the 10Dusun (Sub Village) with taking surveyed build-ings about 50 buildings for each Dusun. So thereare 500 buildings have been surveyed. The build-

17 Budiarjo, A. (2006). Evacuation Shelter BuildingPlanning for Tsunami-prone Area. Enschede: Msc The-sis. ITC, International Institute for Geo-InformationScience.


ing construction type in Palbapang village canbe categorized as Conf ined Masonry (CM),Unreinforced Clay Brick (UCB), UnreinforcedClay Brick (UCB), Wood House (W), and SteelBuilding (S). Conf ined masonry has similarityto reinforced masonry that vertical and horizon-tal reinforcement bars are provided to enhancethe strength of masonry walls (Brzev, 2007)18.Unreinforced Brick is a single-story building andthe main load bearing structure in this buildingconsists of brick masonry walls built in cementmortar and a timber roof structure. This is non-engineered construction built following tradi-tional construction practice, without any inputby architects or building experts (Wijanto,2003)19. Wood house were distributed only 3.2%of the surveyed building in Palbapang village.Building structural feature is repetitive framingby wood on wood walls. It is classif ied as notengineered building. Steel building typical ofbuilding is based on light steel building. Thistypical building has good quality of construc-tion.

1. Result of Designing Cadastre Database

The feature dataset that has been created con-sists of 2 feature dataset. They are Land Base andAdministration feature dataset. The Land Basefeature dataset consists of Parcel Feature Class,Building Feature Class, Ground Control PointsFeature Class, Road Feature Class, and River Net-work Feature Class. The Administration FeatureDataset consists of Sub Village and Village Fea-ture Class. The Raster Datasets consists of 3 bandsof Quick Bird Satellite Image. There are 3 rela-

tionships that have been created. They are Rela-tionship between Parcel Feature Class and Build-ing Feature Class, Relationship between ParcelFeature Class and Owner Table, and Relation-ship between Building Feature Class and OwnerTable. The Relationship between Parcel andBuilding Feature Class is One to Many relation-ship. It is means that on a parcel can be built oneor more buildings. The Relationship betweenBuilding and Owner Table is Many to Many re-lationship. It is means that a building could be-long to many owners. The Relationship betweenParcel and Owner Table is Many to Many rela-tionship. It is means that a parcel could belongto many owners. The Arc-GIS Diagrammer soft-ware also is used to build reports of designedcadastre database. There are three type of reportwhich describes the whole of structure database.They are Schema Report, Data Report and XMLReport.

Figure 10 1: Designed Cadastre Database

2. Evaluation

The aims of the evaluation are to know howthe designed database can be used for risk analy-sis especially in the earthquake risk and to f indout whether the designed database is feasible ornot for potential users. Question guide is used

18 Brzev, S. (2007). Earthquake Resistant ConfinedMansory Construction. Kanpur, India: National Informa-tion Center of Earthquake Engineering (NICEE).

19 Wijanto, S. (2003). World Housing EncyclopediaReport. Eartquake Engineering Research Institute and In-ternational Association Earthquake Engineering.


in the interview with potential users to evaluatewhether the designed database is feasible or not.In depth interview with the potential users orstakeholders were used to get the response andto get the critical input. The potential users wereselected using simple random statistics out ofthe total institutions working in the related is-sue of disaster that using spatial data and GIS intheir activities. The potential user that was inter-viewed can be grouped into 2 groups of poten-tial user. The f irst group is local government in-stitution, and the second is Non GovernmentOrganization (NGO) working in the related is-sue of disaster and deals with the disaster riskreduction. The interviewed Local Governmentsare: Regional Disaster Management Agency(BPBD Bantul), Regional Development PlanningBoard (BAPPEDA Bantul), National LandAgency of Bantul (BPN Bantul), Tax Off ice ofBantul (KPP Pratama Bantul). The Non Govern-ment Organizations (NGOs) that were inter-viewed are IOM (International Organization forMitigation), DMC (Districts Management Con-sultant, HRC (Housing Resource Center) andDERU-UGM (Disaster Response Unit – GadjahMada University). Generally it comprised 2 sec-tions of question. The f irst section is the pro-f ile of institution and the second is question ofevaluation of the use of designed cadastre da-tabase.

The questions that related to the prof ile ofinstitution consist of question as follow: respon-dent identity, spatial data access and sharing andinstitution activities related to disaster issue. Thequestions related to the evaluation of designeddatabase consist of comments or critical inputof how they use the designed database and sug-gestions to improve the designed database.

1.1. Regional Disaster ManagementAgency (BPBD)Based on (Local Regulation of Bantul Regency

No.6, 2010)20, which is signed on July 22, 2010,the BPBD’s tasks are to establish guidelines anddirectives on disaster relief effort that includesprevention, emergency response, rehabilitation,and reconstruction in a fair and equitable, setstandards and need for implementation of di-saster management, compile, assess, and informthe disaster-prone maps, implementation reportsof the disaster management to the head of localgovernment once a month under normal con-ditions and at all times in a state of disaster emer-gency. BPBD’s functions are the formulation andestablishment of prevention policies and han-dling of refugees by acting quickly and accu-rately, effectively and eff iciently as well as coor-dinating the implementation of disaster manage-ment activities in a planned, integrated and com-prehensive.

To carry out their tasks and functions, BPBDformed three organizational elements, whichconsists of the Chief of BPBD, steering elementof disaster management and executive elementof disaster management. Functions of the steer-ing elements of disaster management are theformulation of the concept of regional disasterreduction policies, monitoring and evaluation inthe implementation of disaster management. Thetask of executive elements of disaster manage-ment is implementing an integrated disastermanagement that includes pre-disaster, emer-gency response, and post-disaster.

There are three main sections within the ex-ecutive element of disaster management, namely

20 Local Regulation of Bantul Regency No.6. (2010).Peraturan Daerah Kabupaten Bantul No. 6 Tahun 2010tentang Pembentukan Organisasi Badan PenanggulanganBencana Daerah Kabupaen Bantul. Bantul: Local Govern-ment of Bantul Regency.


the section of prevention and preparedness, sec-tion of emergency and logistics, and the sectionof rehabilitation and reconstruction.

The possibility of using designed cadastredatabase in BPBD’s organizational activities arethe spatial cadastre database that has been de-veloped using high accuracy and large scale (Par-cel base) is usable for the BPBD’s task and func-tion, whether before, during or after a disaster.For disaster mitigation planning, parcel maps canbe used to determine where the exact locationto assemble or set up temporary shelters. For thereconstruction and rehabilitation activities par-cel map is useful for determining which build-ings will be rebuilt.

The use of cadastral data will be more opti-mally used in disaster management, needs tocooperate or memorandum of understanding(MOU) between government agencies at thelocal level so that data can more easily access,such as the tax off ice and land off ice with BPBD.1.2.Regional Development Planning

Board (BAPPEDA)The role of BAPPEDA in disaster management

is in the making of multi disaster maps, evacua-tion route planning, cooperation with educationdepartments to develop curriculum on disastereducation in school, multi disasters simulationtwo times each year, coordination among agen-cies during a disaster, rehabilitation and recon-struction planning, post disaster rehabilitationplanning of economic sector, social and healthsector.

Cadastre data, in particular parcels mapshould be accessible to a limited basis by localgovernment. Changes in land use or parcel useand ownership of land can be accessed byBAPPEDA so it can be used for planning at thevillage level with a larger scale, and ideally everyvillage has a map of parcels of land, so the parcelmap not only for disaster mitigation planning,but it also can be used for other purposes in Vil-

lage level, such as village off icer can directlymonitoring the change of parcel use and thechange of parcel ownership.1.3.National Land Agency (BPN)

As an institution that registering, measuringand mapping parcels of land and provide landtitles to communities with sporadic and system-atic system, the land off ice have participated indisaster management. Especially the activities ofsystematic land registration and certif ication forfree on the area after earthquake, as in some vil-lages in the Sub-district Pleret which is most se-verely affected areas. Expected with the provi-sion of land certif icates, the certif icate can beused by communities to access f inancingsources, for economic activities, agricultural andother businesses. The land certif icate can be usedas a collateral to access capital to the banks forf inancing economic activities.

Activities for anticipates a disaster, Land Officeof Bantul Regency has been conducting system-atic land registration, land titling activities, andactivities of inventory of land ownership, landtenure, land use and utilization (P4T) in areasprone tsunami disaster, which in some villagesin the Sub-district Sanden, Bantul District.

Given the length of the process of measuringand mapping parcels of land with a high posi-tioning accuracy, the idea to integrate cadastraldata from the tax off ice and land off ice is a matterthat should be considered. This situation will behelping with the acceleration of making mapsof land parcels, or in terms in the land off ice asa physical cadastre. But to certify those land par-cels (legal cadastre), must go through the pro-cess of re-checking and measurement in moredetail, depth research on historical aspects of theparcels that will be certif ied. Integration resultsare only used for information as a physical as-pect of parcel, which is not as juridical aspects.

It is required special rules for prioritizingmapping parcels of land in areas prone to disas-


ters, especially disasters that may cause the lossof the signs of land parcel boundaries, loss ofphysical parcels of land, such as tsunamis, floods,and lava flood. For the earthquake, it is not causesthe loss of ownership of parcels and land bound-ary markers, so cadastre data that is more neededin the earthquake disaster managenment is ca-dastre data related to the buildings.1.4. Tax Office (KPP Pratama)

In Disaster Response, the Tax Office partici-pated in helping the earthquake victims inYogyakarta in 2006 by way of providing tax re-duction policy for earthquake victims. For theyear 2006, all victims of the earthquake in Bantulare not required to pay taxes. For 2007 and 2008tax reductions granted only to the earthquakevictims who request a tax deduction. In 2009until now there is no tax reduction policy, be-cause earthquake victims considered have recov-ered their economic activities. In the utilizationof tax databases to assess the risk of disaster orother disaster management activities, now couldnot be granted and on access by other stakehold-ers except with permission of minister of f inance.It is stated in the tax legislation, namely Article34 Paragraph 1 of Law No. 6 / 1983 STTD Law no.28 year 2007 on general provisions and proce-dures of taxation, which states that: “Every of-f icer is prohibited notify the other party every-thing that is known or notif ied to him by the tax-payer in order to carry out provisions of tax legis-lation”. Within paragraph 3 of Article 34 of thesame law states that: “For the sake of the coun-try, the minister of f inance has an authority togive consent in writing to the off icials and ex-perts to give testimony, to show written evidencefrom or about the taxpayers to designated party”.Based on the explanation above, in principle, taxdatabase that consists of detailed building data-bases can be accessed by other institutions whenthere is written permission from the f inanceminister. Therefore, required cooperation among

agencies at the central level such as between theMinister of Finance and National Disaster Man-agement Agency (BNPB), so at the local level,data sharing can be made between tax off icesand Regional Disaster Management Agency(BPBD). The integrated land off ice parcels mapand tax off ice parcel map is very useful to getthe more accurate value of parcel area that in-fluential in the calculation of the value of TaxObject Sale Value (NJOP) and determination ofproperty tax bills that more fair. Other criticalinput from tax off ice is need to built a databasethat can display 3 dimensions of buildings, so itcan be used for 3D cadastre that is now as dis-course at the tax off ice, which will also be usefulto assess risk of the building against earthquake.1.5.International Organization of Mitiga-

tion (IOM)Since the earthquake struck Yogyakarta and

Central Java province in 2006, IOM has providedsignif icant capacity-building assistance. Besidesemergency responses, asset replacements andsupport to Micro Small Enterprise (MSE) recov-ery, IOM has also contributed to the ongoingrecovery and rehabilitation processes. The IOMlivelihood project is compatible with governmentprograms that are synergy between disaster riskreduction strategy and post disaster economicrecovery. Related to the designed cadastre data-base, particularly parcel data, just in case, if thedisaster is destroying the sign of parcel of land,the parcel boundary owner in northern, west-ern, eastern and southern part of the particularland is needed to be recorded. This data is im-portant to get clear clarif ication from other re-lated parties and avoiding the possibility of con-flict afterward. The suggestions are the wholecollected data and produced spatial data (in thiscase cadastre data) should accessible to the par-ties who has aimed for the development of com-munity, and the localization of produced dataand its accessibility should be informed to the


community related party together for its im-provement.1.6.District Management Consultant

(DMC)District Management Consultant (DMC) is a

partner organization of the Off ice of PublicWorks to carry out monitoring of implementa-tions activities of the residential redevelopmentproject after earthquake in Yogyakarta and Cen-tral Java on 27 May 2006 and tsunami in WestJava on July 17, 2006 by making the communityas the main actors of development), where f i-nancial resources are grant from the Java Re-construction Fund (JRF) and implementingagencies are the Directorate General of CiptaKarya, Department of Public Works based on theGrant Agreement between the Government ofIndonesia with JRF signed February 6, 2007. Thepurpose is re-establishment of settlements thatwere destroyed by earthquakes in the region ofYogyakarta and Central Java and West Javathrough the community based. The expectedresult of DMC are the establishment of settle-ment communities that are capable of rebuild-ing their housing and environment, establish-ment houses and basic infrastructure environ-ment according to the requirements of earth-quake resistant building techniques, arrange-ment of settlements in accordance with the re-quirements of disaster mitigation.

In the case of the use of spatial data especiallycadastral data has not been utilized by the DMC.In making the maps in Environmental FundAssistance activities such as maps of land use,electricity network maps, maps of irrigation net-works, irrigation networks map the road networkmap and clean water network map, is done withthe mapping of community-based. It is fearedthat the resulting map is not good quality. Theuse of large-scale maps with more elaboratemethods and using high-resolution satelliteimagery can be used as a base map in the imple-

mentation of community-based mapping as sup-porting documentation of in DMC activities. Thesuggestion given is for institutions such as theLand Off ice and Tax Off ice proactively informthe availability of maps and data needed for en-vironmental planning activities by other institu-tions both local government institutions and nongovernmental institutions that concern in disas-ter management.1.7.HRC (Housing Resource Center)

Housing Resource Center (HRC) was estab-lished as a low income community service agen-cies in the f ield of housing, to bring them to avariety of housing resources according to theirneeds. HRC was conceived and realized in thememorandum of understanding (MOU) be-tween the Ministry of Public Housing and theYogyakarta Special Province Government inOctober 2006 as an initiative to f ill the void therole of an intermediary to open a road, connect-ing and integrating resources from government,business, professional, academic, and commu-nities in joint efforts to provide and improvehousing and decent, affordable and sustainablehousing. At f irst, the HRC is in response to theearthquake reconstruction process but later de-veloped as an institution to address housingneeds in general.

When the earthquake occurred in Yogjakartain 2006, HRC participate in the construction oftemporary houses and reconstruct of permanentbuildings. It is necessary for laying out a com-mon understanding in planning of housing andresidential areas which is oriented not only tobuild houses, but also to put the house as a partof settlements and regions system. It is con-nected with the concept of regional planning bydevelop a model of participatory developmentplanning that put forward the concept of envi-ronmentally friendly development. This has beenimplemented by the HRC in the Dukuh Serut,one of the Dukuh in the village of Palbapang.


The Planning Concept is comprehensive andrefers to the possibility of the designation andthe growth of the Dukuh area in the foreseeablefuture.

The advice given is for cadastre data, espe-cially maps of land parcels used in the conceptof settlement planning, managing ownershipand boundaries of land parcels such that eachparcel of land has direct access to the road or inother terms as Land Consolidation.1.8. DERU-UGM (Disaster Response Unit

- Gadjah Mada University)DERU’s role in disaster management is in

emergency response and post disaster. When adisaster occur, DERU carrying out f ield asses-sment measures to collect the data base which isthen followed up by sending aid to the victims asone of the emergency response actions. After adisaster, do reconstruction in a few spots ofdisaster by making the disaster victims as objectsof handling the reconstruction. For exampleby building temporary shelters in the area direct-ly affected by the disaster.

Some comments are given, especially regard-ing the standardization of data across multipleagencies related to disaster management. Indata standardization in fact not been madeand used as a guide to develop the data bythe agencies involved in disaster management, sothat existing data has different levels of validity.Access to data is a major obstacle. Whereas inthe emergency response required the acquisitionof data quickly and accurately. This constraintimplies a delay of execution in the f ield.

About cadastre database that has beendesigned in an integrated way, in general can bequite good as one solution that can be used byagencies related to disaster managements. Theadvice given is, for the use of this database canbe more optimal, it is needed closer cooperationamong the agencies that collect data cadastre(BPN and the Tax Off ice) and the data user

agencies involved in disaster management suchas BPBD and other NGOs especially that are re-lated in the implementation of emergencyresponse, so that data access is no longer a ma-jor problem in the implementation of emergencyresponse in the f ield.

K. Conclusion

To improve the spatial accuracy and complete-ness of cadastre database, can be used Geo-ref-erenced Quick Bird satellite image. The use ofGNSS-CORS method to measure the GroundControl Points give accurate results. Integrationboth legal cadastre produced by Land Office andfiscal cadastre database produced by Tax Officeis the solution to improve the completeness ofcadastre database. Integration of coordinate sys-tems is the main step to integrate parcel mapproduced by Land Office and tax off ice. Thereare two main steps in designing cadastre geo-database. The f irst step is developing model dia-gram, and the second step is implementing thediagram that was created. In the developingmodel diagram cadastre geo-database throughthe creation of feature datasets, feature classes,raster datasets, tables, relationships between fea-tures, and the relationship between features andtable.

The cadastre database is needed by institu-tions who deal with disaster management issues,whether before, during, and after disaster. Fordisaster mitigation planning, parcel maps can beused to determine where the exact location toassemble or set up temporary shelters. With large-scale of road network Maps, the evacuation routecan be derived easily. This evacuation route isuseful for bringing the injuries victims to the f irsttreatment quickly when disaster occur. For thereconstruction and rehabilitation activities, par-cel map is useful for determining where build-ings will be rebuilt. The designed element at riskdatabase is important to get clear clarif ication


from other related parties and avoiding the possi-bility of conflict. In the concept of settlementplanning, cadastre database is used in manag-ing ownership parcel boundaries, so each parcelhas direct access to the road or in other terms asLand Consolidation. It is required special rulesfor prioritizing mapping parcels of land in areasprone to disasters, especially disasters that maycause the loss of the signs of land parcel bound-aries, loss of physical parcels of land, such as tsu-namis, floods, and lava flood. It is needed coop-eration among government agencies to build amemorandum of understanding (MOU) at thecentral and local level so the data can more eas-ily access and the cadastre database can be useoptimally in the disaster management. It isneeded commitment among institutions whodeal with disaster management in the data shar-ing procedures.

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