Journal of Government and Civil Society

Articles

Vol. 10 No. 1 (2026): Journal of Government and Civil Society (April)

Mass Gathering Mitigation: Examining Muhammadiyah National Congress of 2022 in New

DOI:
https://doi.org/10.31000/x6tk9z55
Submitted
10 March 2026
Published
30 April 2026

Abstract

The COVID-19 pandemic affected Indonesia since March 2, 2020, and was declared as a national disaster since April 13, 2020, based on the Presidential Decree of the Republic of Indonesia Number 12 of 2020 (BNPB, 2020) and was ended in June 2023 based on Presidential Decree No. 17/2023. Muhammadiyah, one of the largest Moslem organizations held national congress in November 2022, when the pandemic was lowered but not yet declared ended by the government. Therefore, it is interesting to discuss how Muhammadiyah mitigated and prepared the big event which were estimated 3 million people attending the event. This research uses a qualitative case study method to evaluate, describe, and understand various aspects of National Congress planning and mitigation. The concept of Risk Management (RM) was used to mitigate the potential risk, including first, risk evaluation, to analyze and evaluate the potential risk. Second, risk mitigation, to modify the events by enhancing venue facilities, enforcing mask use, improving capacity of staff and committee. Third, risk communication which focus on proactive dissemination of information, creating rules & regulations, and precautionary actions. The results showed that Muhammadiyah has adequately implementing risk management pre and during the Congress by working with various stakeholders to evaluate risk and did some precautionary actions. Muhammadiyah made many rules and regulations to minimize the Covid risks and ensuring all participants had two doses of vaccine. Lastly, Muhammadiyah which is well known for the health sectors had prepared field hospital, coordinated with hospitals, and emergency medical team which was tend by during the event

Pandemi COVID-19 secara signifikan memengaruhi Indonesia sejak kasus pertama dikonfirmasi pada 2 Maret 2020 dan ditetapkan sebagai bencana nasional pada 13 April 2020 melalui Keputusan Presiden Nomor 12 Tahun 2020, sebelum secara resmi dinyatakan berakhir pada Juni 2023 melalui Keputusan Presiden Nomor 17 Tahun 2023. Meskipun kondisi pandemi masih berlangsung pada akhir tahun 2022, Muhammadiyah—sebagai salah satu organisasi Islam terbesar di Indonesia—tetap menyelenggarakan Muktamar Nasional pada November 2022 yang dihadiri sekitar tiga juta peserta. Kondisi ini menjadi kasus penting untuk mengkaji bagaimana penyelenggaraan acara berskala besar dapat dilakukan di tengah risiko kesehatan masyarakat. Penelitian ini bertujuan untuk menganalisis bagaimana Muhammadiyah menerapkan kerangka manajemen risiko dalam memitigasi risiko kesehatan selama pelaksanaan Muktamar. Menanggapi keterbatasan studi empiris mengenai penyelenggaraan acara keagamaan berskala besar di masa pandemi, khususnya di negara berkembang, penelitian ini menggunakan pendekatan studi kasus kualitatif. Data dikumpulkan melalui analisis dokumen, laporan pemangku kepentingan, serta observasi terkait perencanaan dan pelaksanaan Muktamar. Analisis dilakukan dengan menggunakan kerangka manajemen risiko yang meliputi evaluasi risiko, mitigasi risiko, dan komunikasi risiko. Hasil penelitian menunjukkan bahwa Muhammadiyah telah mengimplementasikan strategi manajemen risiko yang terstruktur dan adaptif. Evaluasi risiko dilakukan melalui koordinasi multipihak untuk mengidentifikasi potensi risiko kesehatan. Mitigasi risiko diwujudkan melalui penyesuaian desain kegiatan, termasuk peningkatan kapasitas dan fasilitas lokasi, penerapan protokol kesehatan seperti penggunaan masker, serta penguatan kapasitas panitia. Komunikasi risiko dilakukan melalui diseminasi informasi secara proaktif, penyusunan aturan dan pedoman, serta penerapan langkah-langkah pencegahan bagi peserta. Selain itu, Muhammadiyah memastikan kepatuhan terhadap vaksinasi peserta serta menyiapkan infrastruktur kesehatan pendukung, seperti rumah sakit lapangan, koordinasi dengan fasilitas kesehatan, dan penyediaan tim medis darurat. Penelitian ini berkontribusi pada literatur tata kelola kesehatan publik dan manajemen risiko dengan menunjukkan bahwa aktor non-negara mampu menyelenggarakan kegiatan berskala besar secara efektif di tengah krisis kesehatan melalui strategi manajemen risiko yang terstruktur, kolaboratif, dan adaptif.

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