Unpacking Failures and Challenges in Flood Mitigation: An Actuating-Based Policy Implementation Analysis in West Aceh
Abstract
Flood disasters remain a recurrent and escalating risk in Indonesia, particularly in regions with high hydrometeorological vulnerability such as West Aceh Regency. This study aims to analyze the implementation of flood disaster mitigation policies at the local government level by employing George R. Terry’s actuating framework, which encompasses motivating, directing, communicating, and leading. A qualitative research approach was adopted, utilizing in-depth interviews, field observations, and document analysis to capture the dynamics of policy implementation in practice. The findings reveal that the effectiveness of flood mitigation in West Aceh is constrained by several interrelated factors, including low community participation, weak policy synchronization across institutions, limited communication systems, and insufficient leadership coordination. Although the local government has undertaken both structural measures—such as drainage improvement and flood control infrastructure—and non-structural measures—such as community awareness programs and institutional strengthening—these efforts remain fragmented and insufficiently integrated. As a result, mitigation outcomes have not yet significantly reduced the recurring flood risks. This study contributes to the literature by proposing an integrative conceptual framework that connects the actuating function with structural and non-structural mitigation approaches. The framework highlights that effective disaster mitigation is not solely dependent on technical interventions but also on the quality of policy execution, institutional capacity, and participatory governance. The study recommends strengthening institutional coordination, enhancing participatory communication strategies, and ensuring the integration of technical and social approaches in local disaster mitigation policies. These findings provide practical and theoretical implications for improving disaster governance in flood-prone regions, particularly within decentralized governance contexts.
References
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Morante-Carballo, F., Pinto-Ponce, B., Santos-Baquerizo, E., Briones-Bitar, J., Berrezueta, E., & Carrión-Mero, P. (2024). Systematic Review on Seismic Hazards in the Coastal Regions of the Pacific Ring of Fire. International Journal of Safety and Security Engineering, 14(5), 1591–1605. https://doi.org/10.18280/ijsse.140526
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Pradhan, D. (2020). Local Customary Laws and Decentralised Community Based Disaster Mitigation. Proceedings of the International Conference on Community Development (ICCD 2020). https://doi.org/10.2991/assehr.k.201017.038
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Reynolds, B., & W. Seeger, M. (2005). Crisis and Emergency Risk Communication as an Integrative Model. Journal of Health Communication, 10(1), 43–55. https://doi.org/10.1080/10810730590904571
Rizki, A. (2025). Banjir Meluas di Aceh Barat, 58 Gampong Terdampak BPBD Lakukan Evakuasi dan Posko. BPBD Aceh Barat. https://bpbd.acehbaratkab.go.id/berita/kategori/banjir/banjir-meluas-di-aceh-barat-58-gampong-terdampak-bpbd-lakukan-evakuasi-dan-posko
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Septikasari, Z., Retnowati, H., & Wilujeng, I. (2022). Pendidikan Pencegahan dan Pengurangan Risiko Bencana (PRB) Sebagai Strategi Ketahanan Sekolah Dasar dalam Penanggulangan Bencana. Jurnal Ketahanan Nasional, 28(1), 120. https://doi.org/10.22146/jkn.74412
Setyowati, A. B. (2020). Making Territory and Negotiating Citizenship in a Climate Mitigation Initiative in Indonesia. Development and Change, 51(1), 144–166. https://doi.org/10.1111/dech.12541
Sharma, R. (2023). Civil society organizations’ institutional climate capacity for community-based conservation projects: Characteristics, factors, and issues. Current Research in Environmental Sustainability, 5, 100218. https://doi.org/10.1016/j.crsust.2023.100218
Shaw, R. (2012). Community based disaster risk reduction. Emerald Group Publishing.
Syugiarto, S., Khaldun, R. I., Tawil, Y. P., & Kusnadi, H. W. (2022). Pemulihan Pasca-Bencana di Indonesia: Perlukah Dilakukan Perubahan Kebijakan?. Jurnal Ilmiah Ilmu Sosial, 8(2), 152–161. https://doi.org/10.23887/jiis.v8i2.47443
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UNDRR. (2020). Ecosystem-Based Disaster Risk Reduction: Implementing Nature-based Solutions for Resilience.
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Zhao, S., McClusky, S., Cummins, P. R., Miller, M. S., & Nugroho, H. (2023). New Insights into Crustal Deformation of the Indonesia–Australia–New Guinea Collision Zone from a Broad‐Scale Kinematic Model. Journal of Geophysical Research: Solid Earth, 128(2). https://doi.org/10.1029/2022JB024810
Zulkifli, B., Ihsan, F., Makkawaru, M. A., Fadhalna, M., & Tallo, A. J. (2024). Identifikasi Daerah Rawan Banjir di Kabupaten Sikka Menggunakan Geographic Information System (GIS). Angkasa: Jurnal Ilmiah Bidang Teknologi, 16(1), 52. https://doi.org/10.28989/angkasa.v16i1.1966
Ansell, C., & Gash, A. (2008). Collaborative Governance in Theory and Practice. Journal of Public Administration Research and Theory, 18(4), 543–571. https://doi.org/10.1093/jopart/mum032
Arnstein, S. R. (1969). A Ladder of Citizen Participation. Journal of the American Institute of Planners, 35(4), 216–224. https://doi.org/10.1080/01944366908977225
Awoonor, M. D. (2025). Enhancing Local Governance through Community Participation in Rural Development Projects in Nigeria: Literature Review. African Journal on Impact, Economic and Social Studies, 2(3), 0–20. https://doi.org/10.63159/611020
Aylett, A. (2015). Institutionalizing the urban governance of climate change adaptation: Results of an international survey. Urban Climate, 14, 4–16. https://doi.org/10.1016/j.uclim.2015.06.005
Bahri, S. (2025). Usulkan Lima Proyek Strategis, Bupati Aceh Barat Temui Menteri PU. Aceh Tribunnews.
Beerens, R. J. J., & Tehler, H. (2016). Scoping the field of disaster exercise evaluation - A literature overview and analysis. International Journal of Disaster Risk Reduction, 19, 413–446. https://doi.org/10.1016/j.ijdrr.2016.09.001
BNPB. (2025). Data Bencana Indonesia Tahun 2024.
Bulkeley, H., Schroeder, H., Janda, K., Zhao, J., Armstrong, A., Chu, S. Y., & Ghosh, S. (2011). The Role of Institutions, Governance, and Urban Planning for Mitigation and Adaptation. Cities and Climate Change (pp. 125–159). The World Bank. https://doi.org/10.1596/9780821384930_CH05
Cid, A., & Lerner, A. M. (2023). Local governments as key agents in climate change adaptation: challenges and opportunities for institutional capacity-building in Mexico. Climate Policy, 23(5), 649–661. https://doi.org/10.1080/14693062.2022.2163972
Darmansyah, D. (2024). Jadi Jalur Mitigasi Bencana, PUPR Aceh Barat Kebut Pengaspalan Ruas Marek- Pasi Jambu. Catat.Co. https://www.catat.co/news/jadi-jalur-mitigasi-bencana-pupr-aceh-barat-kebut-pengaspalan-ruas-marek-pasi-jambu/index.html
Fahrimal, Y., & Husna, A. (2023). Komunikasi Risiko Berbasis Masyarakat dalam Menghadapi Banjir di Kabupaten Aceh Barat. Calathu: Jurnal Ilmu Komunikasi, 5(2), 74–91. https://doi.org/10.37715/calathu.v5i2.4004
Fahrimal, Y., Husna, A., & Husna, F. (2023). Perilaku Komunikasi Risiko dalam Fase Kesiapsiagaan Masyarakat menghadapi Bencana Banjir di Aceh Barat. Jurnal Ilmu Komunikasi, 9(1), 26. https://doi.org/10.35308/source.v9i1.7244
Fikri, A. F., Maarif, S., Ruswandi, D., Prakoso, B., Rahmah, N. A., Tyas, T. H., Widana, I. K., & Bandaso, R. M. (2022). Kapasitas Masyarakat Pesisir Pidie Jaya dalam Menghadapi Abrasi dan Implikasinya Terhadap Keamanan Insani. Jurnal Pembangunan Wilayah Dan Kota, 18(4), 390–399. https://doi.org/10.14710/pwk.v18i4.38513
Hutchings, S. J., & Mooney, W. D. (2024). Seismotectonics of the Philippine and Taiwan Subduction Systems and Implications for Seismic Hazards. Geochemistry, Geophysics, Geosystems, 25(6). https://doi.org/10.1029/2023GC010990
Irsyam, M., Cummins, P. R., Asrurifak, M., Faizal, L., Natawidjaja, D. H., Widiyantoro, S., Meilano, I., Triyoso, W., Rudiyanto, A., Hidayati, S., Ridwan, M., Hanifa, N. R., & Syahbana, A. J. (2020). Development of the 2017 national seismic hazard maps of Indonesia. Earthquake Spectra, 36(1S), 112–136. https://doi.org/10.1177/8755293020951206
Iskandar, T. D. (2026). Pemkab Aceh Barat usulkan Rp200 miliar untuk pemulihan infrastruktur pascabencana. Antara Aceh. https://aceh.antaranews.com/berita/402998/pemkab-aceh-barat-usulkan-rp200-miliar-untuk-pemulihan-infrastruktur-pascabencana
Kazhimi, R. (2020). Mitigation of the Wonorejo active fault on the Probolinggo-Banyuwangi toll road. E3S Web of Conferences, 156, 01001. https://doi.org/10.1051/e3sconf/202015601001
Kementerian PUPR Balai Wilayah Sungai Sumatera I. (2025). Banjir Akibat Curah Hujan Tinggi Melumpuhkan Sejumlah Wilayah di Aceh Barat. Berita Balai. https://sda.pu.go.id/balai/bwssumatera1/article/banjir-akibat-curah-hujan-tinggi-melumpuhkan-sejumlah-wilayah-di-aceh-barat
Lincoln, Y. S., Guba, E. G., & Pilotta, J. J. (1985). Naturalistic inquiry. International Journal of Intercultural Relations, 9(4), 438–439. https://doi.org/10.1016/0147-1767(85)90062-8
Liu, S., Li, H., Boufadel, M. C., & Li, G. (2008). Numerical simulation of the effect of the sloping submarine outlet-capping on tidal groundwater head fluctuation in confined coastal aquifers. Journal of Hydrology, 361(3–4), 339–348. https://doi.org/10.1016/j.jhydrol.2008.08.003
Lomban, A. A., & Ariyani, N. (2023). Efektifitas Komunikasi InaRisk Personal Membangun Budaya Sadar Bencana Masyarakat. Ijd-Demos, 5(1). https://doi.org/10.37950/ijd.v5i1.387
Løvholt, F., Kühn, D., Bungum, H., Harbitz, C. B., & Glimsdal, S. (2012). Historical tsunamis and present tsunami hazard in eastern Indonesia and the southern Philippines. Journal of Geophysical Research: Solid Earth, 117(B9). https://doi.org/10.1029/2012JB009425
Media Center Provinsi Aceh. (2024). Januari-Oktober 2024, Bencana Alam di Aceh Terjadi 241 Kali. InfoPublik: Portal Berita. https://infopublik.id/kategori/nusantara/882873/januari-oktober-2024-bencana-alam-di-aceh-terjadi-241-kali
Miles, M. B., Huberman, A. M., & Saldana, J. (2014). Qualitative Data Analysis: A Methods Sourcebook. SAGE Publication.
Morante-Carballo, F., Pinto-Ponce, B., Santos-Baquerizo, E., Briones-Bitar, J., Berrezueta, E., & Carrión-Mero, P. (2024). Systematic Review on Seismic Hazards in the Coastal Regions of the Pacific Ring of Fire. International Journal of Safety and Security Engineering, 14(5), 1591–1605. https://doi.org/10.18280/ijsse.140526
Mudjiharto, M. (2020). Perdamaian Aceh Pasca Bencana Tsunami Aceh 2004 dan Mou Helsinki: Telaah Kritis Disaster Diplomacy Pemerintah Indonesia dalam Penyelesaian Konflik Aceh. Jurnal Politik Profetik, 8(1), 89–111. https://doi.org/10.24252/profetik.v8i1a4
Mulki, Y., & Alhadi, Z. (2022). Kapabilitas Pemerintah Kabupaten Pasaman Barat dalam Mitigasi Bencana Banjir di Kenagarian Batahan. JISIP (Jurnal Ilmu Sosial Dan Pendidikan), 6(3). https://doi.org/10.58258/jisip.v6i3.3382
Munawarah, R., & Maulidian, M. O. R. (2022). Mitigasi Bencana Banjir di Desa Teluk Halban Kecamatan Bendahara Kabupaten Aceh Tamiang. Jurnal Pendidikan Geosfer, 7(1), 85–94. https://doi.org/10.24815/jpg.v7i1.23700
Muntafi, Y. (2021). Seismic Properties and Fractal Dimension of Subduction Zone in Java and Its Vicinity Using Data from 1906 to 2020. International Journal of GEOMATE, 21(85). https://doi.org/10.21660/2021.85.j2217
Peters, B. G. (2015). Pursuing Horizontal Management: The Politics of Public Sector Coordination. University Press of Kansas.
Pradhan, D. (2020). Local Customary Laws and Decentralised Community Based Disaster Mitigation. Proceedings of the International Conference on Community Development (ICCD 2020). https://doi.org/10.2991/assehr.k.201017.038
Prayitno, G., & Windesi, I. R. (2025). Infografis Pemetaan Perkiraan Bahaya Banjir di Kabupaten Waropen Berbasis Sistem Informasi Geografis Menggunakan arcGIS. Jurnal Teknologi dan Informatika, 2(2), 32–43. https://doi.org/10.70539/jti.v2i2.41
Pressman, J. L., & Wildavsky, A. B. (1973). Implementation: How great expectations in Washington are dashed in Oakland: Or, why it’s amazing that federal programs work at all, this being a saga of the Economic Development Administration as told by two sympathetic observers who seek to build morals on a foundation of ruined hopes (Vol. 708). University of California Press.
Reynolds, B., & W. Seeger, M. (2005). Crisis and Emergency Risk Communication as an Integrative Model. Journal of Health Communication, 10(1), 43–55. https://doi.org/10.1080/10810730590904571
Rizki, A. (2025). Banjir Meluas di Aceh Barat, 58 Gampong Terdampak BPBD Lakukan Evakuasi dan Posko. BPBD Aceh Barat. https://bpbd.acehbaratkab.go.id/berita/kategori/banjir/banjir-meluas-di-aceh-barat-58-gampong-terdampak-bpbd-lakukan-evakuasi-dan-posko
Sabatier, P., & Mazmanian, D. (1980). The Implementation of Public Policy: A Framework of Analysis. Policy Studies Journal, 8(4), 538–560. https://doi.org/10.1111/j.1541-0072.1980.tb01266.x
Septikasari, Z., Retnowati, H., & Wilujeng, I. (2022). Pendidikan Pencegahan dan Pengurangan Risiko Bencana (PRB) Sebagai Strategi Ketahanan Sekolah Dasar dalam Penanggulangan Bencana. Jurnal Ketahanan Nasional, 28(1), 120. https://doi.org/10.22146/jkn.74412
Setyowati, A. B. (2020). Making Territory and Negotiating Citizenship in a Climate Mitigation Initiative in Indonesia. Development and Change, 51(1), 144–166. https://doi.org/10.1111/dech.12541
Sharma, R. (2023). Civil society organizations’ institutional climate capacity for community-based conservation projects: Characteristics, factors, and issues. Current Research in Environmental Sustainability, 5, 100218. https://doi.org/10.1016/j.crsust.2023.100218
Shaw, R. (2012). Community based disaster risk reduction. Emerald Group Publishing.
Syugiarto, S., Khaldun, R. I., Tawil, Y. P., & Kusnadi, H. W. (2022). Pemulihan Pasca-Bencana di Indonesia: Perlukah Dilakukan Perubahan Kebijakan?. Jurnal Ilmiah Ilmu Sosial, 8(2), 152–161. https://doi.org/10.23887/jiis.v8i2.47443
Tanauma, A., Pasau, G., & Tamuntuan, G. (2021). Strategi Mitigasi Bencana Tsunami Di Desa Kema Satu Kabupaten Minahasa Utara. The Studies of Social Sciences, 3(2), 36. https://doi.org/10.35801/tsss.2021.3.2.37255
Terry, G. R. (1953). Principles of Management. University of Michigan.
Tjoetra, A., & Maifizar, A. (2019). Peran Perguruan Tinggi dalam Mitigasi Bencana (Studi Kasus pada UnitKegiatan Mahasiswa Penanggulangan Kebencanaan Universitas Teuku Umar). Talenta Conference Series: Local Wisdom, Social, and Arts (LWSA), 2(1), 1–8. https://doi.org/10.32734/lwsa.v2i1.582
UNDRR. (2019). Global Assessment Report on Disaster Risk Reduction 2019. United Nations.
UNDRR. (2020). Ecosystem-Based Disaster Risk Reduction: Implementing Nature-based Solutions for Resilience.
Yin, R. K. (2017). Case study research and applications: Design and methods. Sage publications.
Zhao, S., McClusky, S., Cummins, P. R., Miller, M. S., & Nugroho, H. (2023). New Insights into Crustal Deformation of the Indonesia–Australia–New Guinea Collision Zone from a Broad‐Scale Kinematic Model. Journal of Geophysical Research: Solid Earth, 128(2). https://doi.org/10.1029/2022JB024810
Zulkifli, B., Ihsan, F., Makkawaru, M. A., Fadhalna, M., & Tallo, A. J. (2024). Identifikasi Daerah Rawan Banjir di Kabupaten Sikka Menggunakan Geographic Information System (GIS). Angkasa: Jurnal Ilmiah Bidang Teknologi, 16(1), 52. https://doi.org/10.28989/angkasa.v16i1.1966
Authors
Unpacking Failures and Challenges in Flood Mitigation: An Actuating-Based Policy Implementation Analysis in West Aceh. (2026). Journal of Government Science (GovSci) : Jurnal Ilmu Pemerintahan, 7(1), 38-61. https://doi.org/10.54144/govsci.v7i1.150
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