GOVERNMENT OF INDIAMINISTRY OF HOME AFFAIRSNATIONAL POLICYONDISASTER MANAGEMENT
2009

NATIONAL DISASTER MANAGEMENT AUTHORITY

iv

National PolicyonDisaster Management
2009GOVERNMENT OF INDIAMINISTRY OF HOME AFFAIRSNational PolicyonDisaster Management
2009
Approved by the Union Cabinet on 22nd October, 2009

NATIONAL DISASTER MANAGEMENT AUTHORITY

Contents1			Preamble1

1.1.1

The Context

1

1.2.1–1.2.2

Disaster Risks in India

1

1.3.1

Paradigm Shift in Disaster Management (DM)1

Approach and Objectives		

7

2.1.1

Vision7

2.2.1–2.2.2  

Disaster Management (DM)

7

2.3.1

Approach8

2.4.1

Objectives

8

Institutional and Legal Arrangements

9

Disaster Management Act, 2005

9

Institutional Framework under the Act		

9

3.2.1–3.2.3

National Disaster Management Authority (NDMA)

93.2.4–3.2.5

National Executive Committee (NEC)10

3.2.6–3.2.7

State Disaster Management Authority (SDMA)

10

3.2.8

District Disaster Management Authority (DDMA)

10

3.2.9

Local Authorities

10

3.2.10National Institute of Disaster Management (NIDM)

11

3.2.11

National Disaster Response Force (NDRF)

11

3.2.12

Mitigation Reserves

11

Existing Institutional Arrangements		

11

Cabinet Committee on Management of Natural Calamities (CCMNC)
and the Cabinet Committee on Security (CCS)

11

3.3.2

High-Level Committee (HLC)

12

3.3.3

Central Government

12

3.3.4

Role of Central Ministries and Departments

12

3.3.5

National Crisis Management Committee (NCMC)

12

3.3.6–3.3.7

State Governments

13

2			

3			
3.1.1

			

			
3.3.1

        

vContents
3.3.8

District Administration

13

3.3.9

Management of Disasters Impacting more than one State

13

Other Important Institutional Arrangements

13

3.4.1

Armed Forces

13

3.4.2

Central Paramilitary Forces

14

3.4.3

State Police Forces and Fire Services

14

3.4.4

Civil Defence and Home Guards

14

3.4.5

State Disaster Response Force (SDRF)

14

3.4.6

Role of National Cadet Corps (NCC), National Service Scheme (NSS)
and Nehru Yuva Kendra Sangathan (NYKS)

14

3.5.1

International Cooperation

14

4			

Financial Arrangements

15

4.1.1

Approach

15

4.2.1

DM to be in-built in Developmental Plans

15

4.3.1–4.3.2

National Disaster Response and Mitigation Funds

15

4.4.1

Responsibilities of the Central Ministries and Departments

15

4.4.2

State and District Level Arrangements

15

4.4.3

Mitigation Projects

15

4.5.1

Techno-Financial Regime

16

			

    

5			

vi

Disaster Prevention, Mitigation and Preparedness		17

5.1.1  

Disaster Prevention and Mitigation

17

5.1.2–5.1.3

Risk Assessment and Vulnerability Mapping

17

5.1.4

Increasing Trend of Disasters in Urban Areas

18

5.1.5

Critical Infrastructure

18

5.1.6

Environmentally Sustainable Development

18

    5.1.7

Climate Change Adaptation

18

			

Preparedness 					

18

5.2.1–5.2.3

Role of Central Ministries and Departments, and States

18

5.2.4

Forecasting and Early Warning Systems

19

5.2.5–5.2.6

Communications and Information Technology (IT) Support

19

5.2.7

Strengthening of the Emergency Operations Centres

19

5.2.8–5.2.9   

Medical Preparedness and Mass Casualty Management20

5.2.10Training, Simulation and Mock Drills

20         Contents
			Partnerships for Mitigation and Preparedness		20

5.3.1–5.3.2

Community Based Disaster Preparedness

20

5.3.3

Stakeholders’ Participation

20

5.3.4

Corporate Social Responsibility (CSR) and Public-Private
Partnership (PPP)21Media Partnership

21

Techno-Legal Regime		

23

6.1.1

Techno-Legal Regime

23

6.2.1

Revision of Municipal Regulations

23

6.3.1

Land Use Planning23

6.4.1–6.4.2

Safe Construction Practices

23

6.5.1

Compliance Regime

24

6.6.1

Enforcement24

Response		

25

7.1.1

Approach

25

7.2.1

Role of the NEC

25

7.3.1

Role of the Nodal and Other Central Ministries and Departments

25

7.4.1

Role of State, District and Local Authorities

25

7.5.1

Standard Operating Procedures (SOPs)

25

7.6.1

Levels of Disasters

26

7.7.1

Incident Command System (ICS)

26

7.8.1

First and Other Key Responders

26

7.9.1

Medical Response26

7.10.1

Animal Care27

7.11.1

Information and Media Partnership

27

Relief and Rehabilitation

29

8.1.1

Approach29

8.2.1–8.2.2

Setting up of Temporary Relief Camps

29

8.3.1

Management of Relief Supplies

29

8.4.1

Review of Standards of Relief

29

8.5.1

Temporary Livelihood Options and Socio-Economic Rehabilitation

29

8.6.1

Provision of Intermediate Shelters

30

5.3.5

6			

7			

8			

vii

Contents

9			

Reconstruction and Recovery

31

9.1.1

Approach

31

9.2.1

Owner Driven Reconstruction31

9.3.1–9.3.2

Speedy Reconstruction

31

9.4.1

Linking Recovery with Safe Development

31

9.5.1

Livelihood Restoration

32

Capacity Development

33

10.1.1–10.1.2

Approach33

10.2.1–10.2.2

National Priorities

33

10.3.1

Institutional Capacity Development

33

10.4.1

Training of Communities

34

10.5.1

Professional Technical Education

34

10.6.1DM Education in Schools

34

10.7.1

Training of Artisans34

10.8.1

Training of Other Groups

34

10.9.1

Licensing and Certification34

Knowledge Management35

11.1.1

Approach35

11.2.1

Synergetic Application of Science and Technology

35

11.3.1

Knowledge Institutions

35

10			

11			

			
			
11.4.1

Indigenous Technical Knowledge (ITK)35

11.5.1

India Disaster Resource Network (IDRN)

35

11.6.1

India Disaster Knowledge Network (IDKN)

35

11.7.1Documentation of Best Practices and Research

36

Research and Development

37

12.1.1

Approach37

12.2.1

Institutional Arrangements

37

12.3.1–12.3.2

Identification of Needs and Promotion of Research

37

13			

The Road Ahead		

39

			

Abbreviations		

41

12			

viii

Knowledge Dissemination through Information and 				Communication Technologies (ICT)		
35

Contents

			
Diagram 1

			

Diagrams
Disaster Management Continuum

7

Maps

Map 1

Earthquake Zones in India

2

Map 2

Flood Zones in India

3

Map 3

Wind and Cyclone Zones in India

4

Map 4

Landslide Affected States

5

ix

1
The Context
1.1.1 Disasters disrupt progress and destroy the
hard-earned fruits of painstaking developmental
efforts, often pushing nations, in quest for
progress, back by several decades. Thus, efficientmanagement of disasters, rather than mere
response to their occurrence, has in recent times,
received increased attention both within India andabroad. This is as much a result of the recognitionof the increasing frequency and intensity ofdisasters, as it is an acknowledgement that good
governance in a caring and civilised society, needs
to deal effectively with the devastating impact
of disasters.

Disaster Risks in India
1.2.1 India is vulnerable, in varying degrees, toa large number of natural as well as man-madedisasters. 58.6 per cent of the landmass is prone
to earthquakes of moderate to very high intensity;
over 40 million hectares (12 per cent of land) is
prone to floods and river erosion; of the 7,516
km long coastline, close to 5,700 km is prone tocyclones and tsunamis; 68 per cent of the cultivablearea is vulnerable to drought and hilly areas are at
risk from landslides and avalanches. Vulnerability
to disasters/emergencies of Chemical, Biological,
Radiological and Nuclear (CBRN) origin also exists.
Heightened vulnerabilities to disaster risks canbe related to expanding population, urbanisationand industrialisation, development within high-riskzones, environmental degradation and climatechange (Maps 1–4).  

Preamble

1.2.2 In the context of human vulnerability todisasters, the economically and socially weakersegments of the population are the ones that are
most seriously affected. Within the vulnerable
groups, elderly persons, women, children—
especially women rendered destitute, children
orphaned on account of disasters and differently
abled persons are exposed to higher risks.

Paradigm Shift in Disaster Management(DM)
1.3.1 On 23 December 2005, the Governmentof India (GoI) took a defining step by enacting
the Disaster Management Act, 2005, (hereinafterreferred to as the Act) which envisaged thecreation of the National Disaster Management
Authority (NDMA), headed by the Prime Minister,State Disaster Management Authorities (SDMAs)
headed by the Chief Ministers, and District Disaster
Management Authorities (DDMAs) headed by theDistrict Collector or District Magistrate or Deputy
Commissioner as the case may be, to spearhead
and adopt a holistic and integrated approach toDM.   There will be a paradigm shift, from theerstwhile relief-centric response to a proactive
prevention, mitigation and preparedness-driven
approach for conserving developmental gains andto minimise loss of life, livelihood and property.  

1National Policy on Disaster Management 2009

Map 1

EARTHQUAKE ZONES IN INDIA

Source: BMTPC Vulnerability Atlas

2

Preamble

Map 2

FLOOD ZONES IN INDIA

Source: BMTPC Vulnerability Atlas

3

National Policy on Disaster Management 2009

Map 3

WIND AND CYCLONE ZONES IN INDIA

Source: BMTPC Vulnerability Atlas

4

Preamble

Map 4

LANDSLIDE AFFECTED STATES

5

2

Approach and Objectives

Vision•Prompt response to any threatening
disaster situation or disaster.

2.1.1 To build a safe and disaster resilient India
by developing a holistic, proactive, multi-disasteroriented and technology driven strategy througha culture of prevention, mitigation, preparedness
and response.  

•

Assessing the severity or magnitude ofeffects of any disaster.

•

Evacuation, rescue and relief.

•

Rehabilitation and reconstruction.  

Disaster Management (DM)2.2.2 A typical DM continuum comprises
six elements; the pre-disaster phase includes
prevention, mitigation and preparedness, while
the post-disaster phase includes response,
rehabilitation, reconstruction and recovery. A
legal and institutional framework binds all theseelements together (Diagram I).

2.2.1 A disaster 1 refers to a catastrophe,mishap, calamity or grave occurrence from natural
or man-made causes, which is beyond the coping
capacity of the affected community. DM involves
a continuous and integrated
process of planning,
Diagram 1
organising, coordinating andimplementing measures
DISASTER MANAGEMENT CONTINUUM
which are necessary or
expedient for:1•

Prevention of danger
or threat of any
disaster.

•

Mitigation or
reduction of risk of any
disaster or its severity
or consequences.

•

Capacity building
including researchand knowledge
management.

•

Preparedness to deal
with any disaster.  

Source:Sections 2(d) and (e) of DM Act, 2005.

7

National Policy on Disaster Management 2009

Approach
2.3.1 A holistic and integrated approach will
be evolved towards disaster management withemphasis on building strategic partnerships at
various levels. The themes underpinning the policy
are:•Community based DM, including last
mile integration of the policy, plans andexecution.

•

Capacity development in all spheres.

•Consolidation of past initiatives and bestpractices.

•

Cooperation with agencies at National andInternational levels.

•

Multi-sectoral synergy.

Objectives
2.4.1 The objectives of the National Policy on
Disaster Management are:8•

Promoting a culture of prevention,
preparedness and resilience at all levels
through knowledge, innovation andeducation.

•

Encouraging mitigation measures basedon technology, traditional wisdom andenvironmental sustainability.  

•Mainstreaming disaster management into
the developmental planning process.

•Establishing institutional and technolegal frameworks to create an enabling
regulatory environment and a complianceregime.  

•Ensuring efficient mechanism for
identification, assessment and monitoringof disaster risks.

•Developing contemporary forecastingand early warning systems backed byresponsive and fail-safe communication
with information technology support.
•

Ensuring efficient response and relief witha caring approach towards the needs of thevulnerable sections of the society.

•

Undertaking reconstruction as anopportunity to build disaster resilient
structures and habitat for ensuring safer
living.

•Promoting a productive and proactive
partnership with the media for disastermanagement.

3

Institutional and Legal
Arrangements

Disaster Management Act, 2005
3.1.1 The Act lays down institutional, legal,financial and coordination mechanisms at the
National, State, District and Local levels. These
institutions are not parallel structures and will workin close harmony. The new institutional framework
is expected to usher in a paradigm shift in DM
from relief-centric approach to a proactive regime
that lays greater emphasis on preparedness,prevention and mitigation.

Institutional Framework under the Act
National Disaster Management Authority (NDMA)
3.2.1 The NDMA, as the apex body for disastermanagement, is headed by the Prime Ministerand has the responsibility for laying down policies,
plans and guidelines for DM and coordinating
their enforcement and implementation for
ensuring timely and effective response todisasters. The guidelines will assist the Central
Ministries, Departments and States to formulate
their respective DM plans. It will approve the
National Disaster Management Plans and DM
plans of the Central Ministries/Departments. It
will take such other measures, as it may consider
necessary, for the prevention of disasters, or
mitigation, or preparedness and capacity building,for dealing with a threatening disaster situation
or disaster. Central Ministries/Departments
and State Governments will extend necessary
cooperation and assistance to NDMA for carryingout its mandate. It will oversee the provision
and application of funds for mitigation andpreparedness measures. NDMA has the power
to authorise the Departments or authorities
concerned, to make emergency procurement ofprovisions or materials for rescue and relief ina threatening disaster situation or disaster. The
general superintendence, direction and control of
the National Disaster Response Force (NDRF) isvested in and will be exercised by the NDMA. The
National Institute of Disaster Management (NIDM)
works within the framework of broad policies andguidelines laid down by the NDMA.
3.2.2 The NDMA is mandated to deal withall types of disasters; natural or man-made.
Whereas, such other emergencies including thoserequiring close involvement of the security forces
and/or intelligence agencies such as terrorism(counter-insurgency), law and order situations,serial bomb blasts, hijacking, air accidents, CBRN
weapon systems, mine disasters, port and harbour
emergencies, forest fires, oilfield fires and oil
spills will continue to be handled by the extant
mechanism i.e., National Crisis Management
Committee (NCMC).  
3.2.3 NDMA may, however, formulate guidelines
and facilitate training and preparedness activities
in respect of CBRN emergencies. Cross-cutting
themes like medical preparedness, psycho-social
care and trauma, community based disaster
preparedness, information and communication
technology, training, preparedness, awarenessgeneration etc., for natural and man-madedisasters will also engage the attention of NDMA
in partnership with the stakeholders concerned.
Resources available with the disaster management

9National Policy on Disaster Management 2009
authorities at all levels, which are capable ofdischarging emergency support functions,will be made available to the nodal Ministries/
Agencies dealing with the emergencies at timesof impending disaster(s).

National Executive Committee (NEC)
3.2.4 The NEC comprises the Union Home
Secretary as Chairperson, and the Secretaries to the
GoI in the Ministries/Departments of Agriculture,
Atomic Energy, Defence, Drinking Water Supply,
Environment and Forests, Finance (Expenditure),
Health, Power, Rural Development, Science &Technology, Space, Telecommunications, Urban
Development, Water Resources and the Chiefof the Integrated Defence Staff of the Chiefs ofStaff Committee as members. Secretaries in the
Ministry of External Affairs, Earth Sciences, Human
Resource Development, Mines, Shipping, Road
Transport & Highways, and the Secretary, NDMA
will be special invitees to the meetings of the NEC.
3.2.5 The NEC is the executive committee of
the NDMA, and is mandated to assist the NDMA
in the discharge of its functions and also ensurecompliance of the directions issued by theCentral Government. The NEC is to coordinate theresponse in the event of any threatening disastersituation or disaster. The NEC will prepare the
National Plan for Disaster Management based on
the National Policy on Disaster Management. The
NEC will monitor the implementation of guidelines
issued by NDMA. It will also perform such otherfunctions as may be prescribed by the Central
Government in consultation with the NDMA.

State Disaster Management Authority (SDMA)
3.2.6 At the State level, the SDMA, headedby the Chief Minister, will lay down policies
and plans for DM in the State. It will, inter alia
approve the State Plan in accordance with theguidelines laid down by the NDMA, coordinate

10

the implementation of the State Plan, recommend
provision of funds for mitigation and preparedness
measures and review the developmental plans of
the different Departments of the State to ensure
the integration of prevention, preparedness andmitigation measures.
3.2.7 The State Government shall constitutea State Executive Committee (SEC) to assist the
SDMA in the performance of its functions. The
SEC will be headed by the Chief Secretary to theState Government and coordinate and monitor the
implementation of the National Policy, the National
Plan and the State Plan. The SEC will also provide
information to the NDMA relating to different
aspects of DM.

District Disaster Management Authority (DDMA)
3.2.8 The DDMA will be headed by the District
Collector, Deputy Commissioner or District
Magistrate as the case may be, with the elected
representative of the local authority as the CoChairperson. The DDMA will act as the planning,
coordinating and implementing body for DM at
the District level and take all necessary measures
for the purposes of DM in accordance with theguidelines laid down by the NDMA and SDMA. It
will, inter alia prepare the District DM plan for theDistrict and monitor the implementation of the
National Policy, the State Policy, the National Plan,
the State Plan and the District Plan. The DDMA
will also ensure that the guidelines for prevention,
mitigation, preparedness and response measureslaid down by the NDMA and the SDMA are
followed by all the Departments of the State
Government at the District level and the local
authorities in the District.   

Local Authorities
3.2.9 For the purpose of this Policy, local
authorities would include Panchayati Raj Institutions(PRI), Municipalities, District and Cantonment

Institutional and Legal Arrangements
Boards, and Town Planning Authorities which
control and manage civic services. These bodies
will ensure capacity building of their officers andemployees for managing disasters, carry out
relief, rehabilitation and reconstruction activities
in the affected areas and will prepare DM Plans
in consonance with the guidelines of the NDMA,
SDMAs and DDMAs. Specific institutionalframework for dealing with disaster management
issues in mega cities will be put in place.

National Institute of Disaster Management (NIDM)
3.2.10 The NIDM, in partnership with otherresearch institutions has capacity development as
one of its major responsibilities, along with training,
research, documentation and development of a
National level information base. It will network withother knowledge-based institutions and function
within the broad policies and guidelines laid downby the NDMA. It will organise training of trainers,
DM officials and other stakeholders. The NIDM
will strive to emerge as a ‘Centre of Excellence’in the field of Disaster Management.

National Disaster Response Force (NDRF)
3.2.11 For the purpose of specialised response
to a threatening disaster situation or disasters/
emergencies both natural and man-made such as
those of CBRN origin, the Act has mandated theconstitution of a National Disaster Response Force(NDRF). The general superintendence, direction
and control of this force shall be vested in andexercised by the NDMA and the command andsupervision of the Force shall vest in an officer tobe appointed by the Central Government as the
Director General of Civil Defence and National
Disaster Response Force. Presently, the NDRF
comprises eight battalions and further expansion
may be considered in due course. These battalions
will be  positioned at different locations as may
be required. NDRF units will maintain close liaison
with the designated State Governments and will

be available to them in the event of any serious
threatening disaster situation. While the handlingof natural disasters rests with all the NDRF
battalions, four battalions will also be equipped
and trained to respond to situations arising out of
CBRN emergencies. Training centres will be set up
by respective paramilitary forces to train personnel
from NDRF battalions of respective Forces and will
also meet the training requirements of State/UTDisaster Response Forces. The NDRF units will
also impart basic training to all the stakeholders
identified by the State Governments in theirrespective locations. Further, a National Academy
will be set up to provide training for trainers in
disaster management and to meet related Nationaland International commitments.

Mitigation Reserves
3.2.12 Experience in major disasters in the last
decade has clearly established the need for prepositioning of some essential reserves at crucial
locations, including some for the high altitude
areas. These reserves are intended to augment theresources at the State level. Mitigation reserves
will be placed at the disposal of the NDRF forenhancing their emergency response capabilities
for assisting the State Governments during adisaster or disaster-like situation.

Existing Institutional Arrangements
Cabinet Committee on Management of
Natural Calamities (CCMNC) and the Cabinet
Committee on Security (CCS)
3.3.1 CCMNC had been constituted to oversee
all aspects relating to the management of naturalcalamities including assessment of the situationand identification of measures and programmesconsidered necessary to reduce its impact,
monitor and suggest long-term measures forprevention of such calamities, formulate andrecommend programmes for public awareness for11National Policy on Disaster Management 2009building up society’s resilience to them. The CCS
deals with issues related to defence of the country,
law and order and internal security, policy mattersconcerning foreign affairs that have internal orexternal security implications, and economic andpolitical issues impinging on National security.

High Level Committee (HLC)
3.3.2 In the case of calamities of severe nature,
Inter-Ministerial Central Teams are deputed to theaffected States for assessment of damage causedby the calamity and the amount of relief assistancerequired. The Inter-Ministerial Group (IMG), headedby the Union Home Secretary, scrutinises theassessment made by the Central Teams andrecommends the quantum of assistance to beprovided to the States from the National Calamity
Contingency Fund (NCCF). However, assessmentof damages by IMG in respect of drought, hailstorm and pest attack will continue to be headedby the Secretary, Ministry of Agriculture andCooperation. The HLC comprising the Finance
Minister as Chairman and the Home Minister,
Agriculture Minister, and Deputy Chairman of the
Planning Commission as members approves theCentral assistance to be provided to the affectedStates based on the recommendations of the IMG.
The constitution and composition of HLC may varyfrom time to time. The Vice Chairman, NDMA will
be a special invitee to the HLC.  

Central Government
3.3.3 In accordance with the provisions of theAct, the Central Government will take all suchmeasures, as it deems necessary or expedient, forthe purpose of DM and will coordinate actions of allagencies. The Central Ministries and Departments
will take into consideration the recommendations of
the State Government Departments while deciding
upon the various pre-disaster requirements andfor deciding upon the measures for prevention
and mitigation of disaster. It will ensure that the12

Central Ministries and Departments integrate
measures for the prevention and mitigation ofdisasters into their developmental plans andprojects, make appropriate allocation of funds
for pre-disaster requirements and take necessary
measures for preparedness and to effectively
respond to any disaster situation or disaster.
It will have the power to issue directions toNEC, State Governments/SDMAs, SECs or anyof their officers or employees, to facilitate or
assist in DM, and these bodies and officials shallbe bound to comply with such directions. The
Central Government will extend cooperation andassistance to the State Governments as requiredby them or otherwise deemed appropriate by it.
It will take measures for the deployment of theArmed Forces for disaster management. The
Central Government will also facilitate coordination
with the UN Agencies, International Organisationsand Governments of Foreign Countries in thefield of disaster management. The Ministry ofExternal Affairs in coordination with the Ministryof Home Affairs (MHA) will facilitate external
coordination/cooperation.

Role of Central Ministries and Departments
3.3.4 As disaster management is a multidisciplinary process, all Central Ministries andDepartments will have a key role in the field of
disaster management. The nodal Ministries andDepartments of the GoI (i.e., the Ministries ofAgriculture, Atomic Energy, Civil Aviation, Earth
Sciences, Environment & Forests, Home Affairs,
Health, Mines, Railways, Space, Water Resourcesetc.) will continue to address specific disasters as
assigned to them.

National Crisis Management Committee (NCMC)
3.3.5 The NCMC, comprising high level officialsof the GoI headed by the Cabinet Secretary,
will continue to deal with major crises whichhave serious or National ramifications. It will beInstitutional and Legal Arrangements
supported by the Crisis Management Groups(CMG) of the Central nodal Ministries and assisted
by NEC as may be necessary. The Secretary,
NDMA may be a member of this Committee.

State Governments
3.3.6 The primary responsibility for disastermanagement rests with the States. The institutional
mechanism put in place at the Centre, Stateand District levels will help the States manage
disasters in an effective manner.   
3.3.7 The Act mandates the State Governmentsinter alia to take measures for preparation ofDisaster Management Plans, integration of
measures for prevention of disasters or mitigation
into development plans, allocation of funds,
establishment of early warning systems, and toassist the Central Government and other agencies
in various aspects of Disaster Management.

District Administration
3.3.8 At the District level, DDMAs will act as theDistrict planning, coordinating and implementing
body for disaster management and will take allmeasures for the purposes of disaster managementin the District in accordance with the guidelines
laid down by NDMA and SDMA.

Management of Disasters Impacting morethan one State
3.3.9 At times, the impact of disasters occurringin one State may spread over to the areas of otherStates. Similarly, preventive measures in respectof certain disasters, such as floods, etc., may
be required to be taken in one State, though theimpact of their occurrence may affect another.
The administrative hierarchy of the country isorganised into National, State and District level
administrations. This presents some difficulties
in respect of disasters impacting more thanone State. Management of such situations
calls for a coordinated approach, which can
respond to a range of issues quite different
from those that normally present themselves,
before, during and after the event. NDMA willencourage identification of such situations andpromote the establishment of mechanisms on
the lines of Mutual Aid Agreement for coordinatedstrategies for dealing with them by the States,
Central Ministries and Departments and otheragencies concerned.

Other Important Institutional
Arrangements
Armed Forces
3.4.1 Conceptually, the Armed Forces are called
upon to assist the civil administration only when
the situation is beyond their coping capability.  
In practice, however, the Armed Forces form an
important part of the Government’s response
capacity and are immediate responders in allserious disaster situations. On account of theirvast potential to meet any adverse challenge,
speed of operational response and the resources
and capabilities at their disposal, the Armed Forces
have historically played a major role in emergency
support functions. These include communication,
search and rescue operations, health and medical
facilities, and transportation, especially in theimmediate aftermath of a disaster. Airlift, heli-lift
and movement of assistance to neighbouring
countries primarily fall within the expertise anddomain of the Armed Forces. The Armed Forces
will participate in imparting training to trainers
and DM managers, especially in CBRN aspects,
heli-insertion, high-altitude rescue, watermanshipand training of paramedics. At the National level,
the Chief of the Integrated Defence Staff to the
Chairman Chiefs of Staff Committee has alreadybeen included in the NEC. Similarly, at the Stateand District levels, the local representatives of the13National Policy on Disaster Management 2009
Armed Forces may be included in their executive
committees to ensure closer coordinationand cohesion.

Central Paramilitary Forces
3.4.2 The Central Paramilitary Forces (CPMFs),
which are also the Armed Forces of the Union,
play a key role at the time of immediate response
to disasters. Besides contributing to the NDRF,
they will develop adequate disaster management
capabilities within their own forces and respondto disasters which may occur in the areas where
they are posted.  The local representatives of the
CPMFs may be co-opted/invited in the executive
committee at the State level.  

State Police Forces and Fire Services
3.4.3 The State Police Forces and the Fire
Services are crucial immediate responders to
disasters. The Police Forces will be trained andthe Fire Services upgraded to acquire multi-hazard
rescue capability.

Civil Defence and Home Guards
3.4.4 The mandate of the Civil Defence andthe Home Guards will be redefined to assign aneffective role in the field of disaster management.  
They will be deployed for community preparedness
and public awareness. A culture of voluntary
reporting to duty stations in the event of any
disaster will be promoted.

State Disaster Response Force (SDRF)
3.4.5 States will be encouraged to create
response capabilities from within their existing
resources. To start with, each State may aim at
equipping and training one battalion equivalent
force. They will also include women members forlooking after the needs of women and children.
NDRF battalions and their training institutions will

14

assist the States/UTs in this effort. The States/UTs
will also be encouraged to include DM training
in their respective Police Training Colleges andbasic and in-service courses, for gazetted andnon-gazetted officers.

Role of National Cadet Corps (NCC), National
Service Scheme (NSS) and Nehru Yuva
Kendra Sangathan (NYKS)
3.4.6 Po t e n t i a l o f t h e s e y o u t h b a s e dorganisations will be optimised to support allcommunity based initiatives and DM training
would be included in their programmes.

International Cooperation
3.5.1 Disasters do not recognise geographicalboundaries. Major disasters may often
simultaneously affect several countries. It willbe the National endeavour to develop close
cooperation and coordination at the International
level in all spheres of DM.

4

Financial Arrangements

Approach
4.1.1 In order to bring about a paradigm shift
from the relief-centric approach to one covering
prevention, preparedness and mitigation, efforts
would be made to mainstream prevention andmitigation measures into the developmental plansand programmes by enlisting cooperation fromall  stakeholders.

recommended by the Finance Commission fromtime to time.
4.3.2 Similarly, as mandated by the Act, theNational Disaster Mitigation Fund (NDMF) may becreated for projects exclusively for the purposeof mitigation. The NDMF shall be applied by the
NDMA and shall be as recommended by the
Finance Commission from time to time.

DM to be in-built in Developmental Plans Responsibilities of the Central Ministries
and Departments
4.2.1 NDMA will ensure mainstreaming ofdisaster risk reduction in the developmental
agenda of all existing and new developmental
programmes and projects which shall incorporate
disaster resilient specifications in design andconstruction. The Planning Commission will
give due weightage to these factors while
allocating resources.

National Disaster Response and
Mitigation Funds
4.3.1 A National Disaster Response Fund
may be constituted as mandated in the Act.
The National Disaster Response Fund will beapplied by the NEC towards meeting expenses
for emergency response, relief and rehabilitation,in accordance with the guidelines laid down by
the Central Government in consultation with the
NDMA. The proposal for merging the National
Calamity Contingency Fund (NCCF) with the
National Disaster Response Fund shall be as

4.4.1 All Central Ministries and Departments
will prepare their DM plans including the financial
projections to support these plans. The necessary
budgetary allocations will be made as part of theFive Year and Annual Plans.

State and District Level Arrangements
4.4.2 It shall be the responsibility of the States
to constitute the Disaster Mitigation and Response
Funds at the State as well as District levels. The
modalities for the application of these funds will
be worked out in accordance with the provisionsof the Act.

Mitigation Projects
4.4.3 The guidelines on various disasters will
form the basis for the formulation of plans for
mitigation projects at the National, State andDistrict level. Central Ministries and Departments
as well as the State Governments will identify

15National Policy on Disaster Management 2009
Mitigation Projects for implementation. The
National level mitigation projects will be duly
prioritised and approved in consultation with
the NDMA.  

Techno-Financial Regime
4.5.1 Considering that the assistance provided
by the Government for rescue, relief, rehabilitation
and reconstruction needs cannot compensate
for massive losses on account of disasters, newfinancial tools such as catastrophe risk financing,

16

risk insurance, catastrophe bonds, micro-financeand insurance etc., will be promoted with
innovative fiscal incentives to cover such losses
of individuals, communities and the corporate
sector. In this regard, the Environmental Relief
Fund under the Public Liability Insurance Act,
1991, enacted for providing relief to chemical
accident victims is worth mentioning. Somefinancial practices such as disaster risk insurance,
micro-finance and micro-insurance, warranty on
newly constructed houses and structures andlinking safe construction with home loans will beconsidered for adoption.

5

Disaster Prevention, Mitigation
and Preparedness

Disaster Prevention and Mitigation
5.1.1 Unlike man-made disasters, natural hazards
like floods, earthquakes, and cyclones cannot be
avoided. However, with mitigation measures alongwith proper planning of developmental work in therisk prone area, these hazards can be prevented
from turning into disasters. A multi-pronged
approach needs to be adopted to undertake
mitigation measures:•

Building mitigation measures into all
development projects.

•

Initiating of National level mitigation
projects by the NDMA, in high priority areas,
with the help of the Central Ministries andDepartments concerned and the States.

•

Encouraging and assisting State level
mitigation projects in accordance withthe guidelines.

•

Indigenous knowledge on disaster andcoping mechanisms adopted by various
States will be given due weightage withspecial focus on protection of heritage
structures.

Risk Assessment and Vulnerability Mapping
5.1.2 Hazard zonation, mapping and vulnerability
analysis in a multi-hazard framework will be carriedout utilising Geographic Information System (GIS)
based databases such as the National Databasefor Emergency Management (NDEM) and National

Spatial Data Infrastructure (NSDI). As a first step
towards addressing disaster vulnerabilities,
Central Ministries and Departments, National
agencies, knowledge-based institutions and DM
authorities at the State and District levels needto carry out risk and vulnerability assessmentof all disaster prone areas. Hazard zonation
mapping and vulnerability analysis based on GIS
and remote sensing data, needs to mandatorily
include a ground check component. Hazard andConsequence Mapping on GIS platforms will be
prepared for all chemical accident prone districts.
5.1.3 The increasing use of GIS, remote sensing
and applications of Global Positioning Systems(GPS) in DM, has made it imperative to set up amechanism for sharing thematic and spatial data
through a designated electronic clearing house.
The NSDI has been set up by the Survey of India, tocollect, compile, analyse and prepare value-added
maps for use by various agencies in the field of DM
for management of natural resources, industrial
applications etc. The NSDI need to work towards
interoperability of data and information sharing
protocols to facilitate effective policy analysis.
A two-way interoperable link will be establishedbetween NSDI and the proposed National Disaster
Emergency Communication Network for easy andquick sharing. The programme designed to havespatial and non-spatial databases in a secureenvironment under the NDEM will derive the data
sets through NSDI for addressing the informationneeds for disaster management.

17National Policy on Disaster Management 2009

Increasing Trend of Disasters in Urban Areas
5.1.4 Disasters in urban areas are distinct inmany ways and the intensity of damage is usually
very high, warranting effective DM plans. Of late,there has been an alarming increase in suchtypes of disasters. Search and rescue efforts inthe urban areas also require specialised training.
Action plans for checking unplanned urbanisationand ensuring safer human habitat against all
forms of disasters will be recognised as priority
areas. State Governments/UTs concerned should
accord priority for improving urban drainage
systems with special focus on non-obstructionof natural drainage systems.  Urban mapping of
infrastructure of spatial resolution will be taken
up for development of Decision Support System(DSS) for management of urban risks.

agricultural, urban and industrial environment arealso to be considered for restoration of ecologicalbalances and sustainable development. Zonal
regulations must ensure the preservation ofnatural habitats.

Climate Change Adaptation
5.1.7 Climate change is impacting our glacial
reserves, water balance, agriculture, forestry,
coastal ecology, bio-diversity and human andanimal health.  There are definite indications thatclimate change would increase the frequency andintensity of natural disasters like cyclones, floods
and droughts in the coming years. In order tomeet these challenges in a sustained and effective
manner, synergies in our approach and strategies
for climate change adaptation and disaster risk
reduction shall be encouraged and promoted.

Critical Infrastructure
5.1.5 It is of utmost importance that criticalinfrastructure like dams, roads, bridges, flyovers,
railway lines, power stations, water storage
towers, irrigation canals, delta water distribution
networks, river and coastal embankments, ports
and other civic utilities are constantly monitored
for safety standards in consonance with worldwide
safety benchmarks and strengthened where
deficient. The building standards for criticalinfrastructure need to be aligned to the safety
norms and Departments/Authorities concerned
would ensure the requisite actions and measures
to ensure this.

Environmentally Sustainable Development
5.1.6 Environmental considerations anddevelopmental efforts, need to go hand in hand for
ensuring sustainability. Restoration of ecologicalbalance in Himalayan regions and raising coastal
shelter belt plantations need to be incorporated
wherever necessary in DM plans. Eco systems
of forests, islands, coastal areas, rivers; and the18

Preparedness
Role of Central Ministries and Departments,
and States
5.2.1 States/UTs have to accord the highest
priority to building up their own DM capabilities.
Plans at all levels will be made in consonancewith the guidelines and provisions in the DM Act,
2005. While the National Plan will be preparedby the NEC, the disaster and domain-specificplans will be made by the respective Central
Ministries and Departments. State and Districtplans will be prepared for their specific disasterrelated vulnerabilities in accordance with theguidelines issued by the NDMA. New institutional
mechanisms may have to be built specifically inthose sectors of DM where none of the existing
agencies are working towards the building of
required capacities.
5.2.2 The plans prepared by Central Ministries
and Departments, States and Districts will
incorporate the inputs of all stakeholders forDisaster Prevention, Mitigation and Preparedness
integration into the planning process. The
participation of all stakeholders, communities andinstitutions will inculcate a culture of preparedness.
A bottom-up approach needs to be adopted forbetter understanding and operationalisation ofthese plans.
5.2.3 The subject of DM will be included as a‘standing item’ in the agenda of the Inter StateCouncil and Zonal Council and as a ‘reporting item’in the National Development Council.

Forecasting and Early Warning Systems
5.2.4 It is most essential to establish, upgrade
and modernise the forecasting and early-warning
systems for all types of disasters. The nodal
agencies responsible for monitoring and carryingout surveillance, for specific natural disasters, will
identify technological gaps and formulate projects
for their upgradation, in a time-bound manner. All
States should provide to the India Meteorological
Department, the required infrastructure for
upgradation/ establishment of meteorologicalobservation systems. Partnerships with the World
Meteorological Organisation (WMO), PacificTsunami Warning System and other regionaland global institutions may also be considered.
ICT tools need to be used for data receptions,forecasting and timely dissemination.

Communications and Information Technology(IT) Support

broadcasting mediums such as televisionand radio shall be used significantly
as they have higher geographical reach.  
For coastal and hilly regions, the networkof the Meteorological Department may
be used.
•Last mile connectivity at the disaster site
for control and conduct of rescue andrelief operations.

5.2.6 Communication and sharing of up-to-date
information using state-of-the-art IT infrastructure
remain at the heart of effective implementation of
the disaster management strategy. Reliable, up-todate and faster sharing of geo-spatial informationacquired from the field or the affected areas isa pre-requisite for effective implementation ofdisaster management strategies.  Efforts should
be made for setting up IT infrastructures consistingof required IT processes, architecture and skills
for quick upgradation and updation of data setsfrom the PRIs or the ULBs. A National Emergency
Communication Network, involving contemporary
space and terrestrial-based technologies in a highly
synergistic configuration and with considerable
redundancy, will be developed. This Network
will ensure real time dissemination of warnings
and information to the affected community andlocal authorities.

Strengthening of the Emergency Operations
Centres

5.2.5 The basic communications and IT 5.2.7 The establishment of Emergency
support requirements for disaster management   Operations Centres at the National, State, Metroand District level and equipping them withcorrespond to the following three levels:
contemporary technologies and communication•
Decision makers and disaster managers at
facilities and their periodic upgradation, will be
all levels.
accorded  priority. For last mile connectivity and•Real time dissemination of advance control of the operations at the disaster hit areas,
warnings and information to the authorities availability of portable platforms will be cateredconcerned at various levels and the for. The integration of Ham radios and such otherthreatened community. For dissemination innovative facilities, into the DM communicationof advance warning and information, system, will be advantageous.

19National Policy on Disaster Management 2009

Medical Preparedness and Mass Casualty
Management
5.2.8 Medical preparedness is a crucialcomponent of any DM Plan. The NDMA, in close
coordination with the Ministry of Health and Family
Welfare, States and premier medical research
institutes will formulate policy guidelines toenhance capacity in emergency medical response
and mass casualty management. DM plans for
hospitals will include developing and trainingof medical teams and paramedics, capacity
building, trauma and psycho-social care, masscasualty management and triage. The surge
and casualty handling capacity of all hospitals
at the time of disasters, will be worked out andrecorded through a consultative process, by all
the States/UTs in the pre-disaster phase. The
State and District authorities will be encouraged
to formulate appropriate procedures for treatmentof casualties by private hospitals during disasters.
These plans will also address post-disaster disease
surveillance systems, networking with hospitals,
referral institutions and accessing services andfacilities such as availability of ambulances andblood banks.
5.2.9 Creation of mobile surgical teams, mobile
hospitals and heli-ambulances for evacuation ofpatients is a crucial component of DM efforts.
The Accident Relief Medical Vans (ARMVs) of the
Ministry of Railways, stabled at stations every
100 km, will be utilised for emergency medical
response by the State and District authorities in
consultation with the Railways. The creation of
additional bio-safety laboratories of level IV will be
addressed by the Nodal Ministry. There is a need
to focus on creating adequate mortuary facilities.
Proper and speedy disposal of dead bodies andanimal carcasses deserves due weightage.

Training, Simulation and Mock Drills
5.2.10 Efficacy of plans and Standard Operating
Procedures (SOPs) are tested and refined through20

training, seminars and mock drills. The NDMA
will assist the States/UTs in these areas and will
also conduct mock drills in different parts of thecountry. State and District authorities will be
encouraged to generate a culture of preparedness
and quick response. Gradually State Governments
will be encouraged to plan a series of exercisesfor various types of disasters in collaboration
with NDMA to enhance the response level ofvarious stakeholders.

Partnerships for Mitigation andPreparedness
Community Based Disaster Preparedness
5.3.1 During any disaster, communities are
not only the first to be affected but also the first
responders. Community participation ensures
local ownership, addresses local needs, andpromotes volunteerism and mutual help to preventand minimise damage. Therefore, the efforts of theStates/UTs, in this regard need to be encouraged.  
5.3.2   The needs of the elderly, women, children
and differently abled persons require special
attention. Women and youth will be encouraged
to participate in decision making committees
and action groups for management of disasters.
As first responders to any disaster, communities
will be trained in the various aspects of responsesuch as first aid, search and rescue, managementof community shelters, psycho-social counselling,
distribution of relief and accessing support fromgovernment/agencies etc. Community plans
will be dovetailed into the Panchayat, Block andDistrict plans.  

Stakeholders’ Participation
5.3.3 T h e p a r t i c i p a t i o n o f c i v i l s o c i e t y
stakeholders will be coordinated by the SDMAs
and DDMAs. Civil Defence, NCC, NYKS, NSS andlocal Non-Governmental Organisations (NGOs)

Disaster Prevention, Mitigation and Preparedness
will be encouraged to empower the communityand generate awareness through their respective
institutional mechanisms. Efforts to promote
voluntary involvement will be actively encouraged.

Corporate Social Responsibility (CSR) andPublic-Private Partnership (PPP)
5.3.4 Historically, the corporate sector has
been supporting disaster relief and rehabilitation
activities. However, the involvement of corporate
entities in disaster risk reduction activities is not
significant. Corporate entities should redefine theirbusiness continuity plan to factor in hazards, risks
and vulnerabilities. They should also create value
in innovative social investments in the community.
PPP between the Government and private sector

would also be encouraged to leverage thestrengths of the latter in disaster management.
The NDMA and SDMAs need to network with thecorporate entities to strengthen and formalise
their role in the DM process for ensuring safety of
the communities.

Media Partnership5.3.5 The media plays a critical role in informationand knowledge dissemination in all phases of DM.  
The versatile potential of both electronic andprint media needs to be fully utilised.  Effective
partnership with the media will be worked out inthe field of community awareness, early warningand dissemination, and education regarding
various disasters.

21

6

Techno-Legal Regime

Techno-Legal Regime
6.1.1 The DM Act, 2005, lays down theinstitutional and coordination mechanisms at
the National, State, District and Local level. The
relevant Acts, Rules and Regulations warranting
amendments need to be identified and brought inconformity with the DM Act in a phased mannerby the Central and State governments and otheragencies concerned.

Revision of Municipal Regulations
6.2.1 In view of the construction boom andrapid urbanisation, municipal regulations such as
development control regulations, building bye-laws
and structural safety features need to be revisited.
These regulations will be reviewed periodically toidentify safety gaps from seismic, flood, landslideand other disasters and suitable modifications
will be made to align them to the revised building
codes of the Bureau of Indian Standards (BIS).
Undesirable practices compromising safety during
disasters, that tend to crop up from time to time,
will need to be addressed in the regulations. The
utilisation of unsuitable areas for construction,
without necessary safeguards further enhances
vulnerability and needs to be guarded against
through appropriate compliance mechanisms.
Similarly, the introduction of suitable regulations
for rural areas will also be emphasised. Where
required, local bodies will be provided withsuitable financial incentives for the preparation of
appropriate regulations. This process will involvean all inclusive exercise involving due sensitisationof governmental organisations at all levels, local
authorities and the community at large to accrue
maximum results thereof.

Land Use Planning
6.3.1 Central Ministries and Departments
concerned in consultation with scientificinstitutions will carry out analysis of environmental
and hazard data for formulation of alternative
land use plans for different geographical andadministrative areas with a holistic approach.
This is more relevant to mega cities, metros andhigh-density urban settlements for safer locationof habitat and other critical facilities. A review ofmaster plans and their compliance, on priority,
will be essential and regarded as the paramount
responsibility of the States/UTs. At the macro-level,
there is a need for preparation of land use planning
based on the inventory database of various uses.
As far as urban settlements are concerned, thefuture land use is to be assessed keeping in view
the anticipated intensity of development.

Safe Construction Practices
6.4.1 Hazards like earthquakes and cyclones
do not kill people but inadequately designed andbadly constructed buildings do. Ensuring safe
construction of new buildings and retrofittingof selected lifeline buildings, as given in the
Earthquake Guidelines, is a critical step to be taken
towards earthquake mitigation. The design andspecification of houses being constructed, under23

National Policy on Disaster Management 2009
the Indira Awas Yojana (IAY) and other government
welfare and development schemes, will also be reexamined to ensure hazard safety. Building codes
will be updated every five years as a mandatory
requirement and also put in the public domain.
Observance of the National Building Code should
be made mandatory in all the State/ Municipal
building bye-laws.
6.4.2 Training of engineers, architects, smallbuilders, construction managers and artisans has
already been started and needs to be intensified
at the State and District level. Safe schools
and hospitals (with large capacity) and Nationalmonuments besides other critical lifeline buildings
will be regarded as a National priority. Enabling
provisions shall be made in all the Centrally
Sponsored Schemes to design school buildings/
hostels with earthquake resilient features and toequip them with appropriate fire safety measures.

Compliance Regime
6.5.1 There is a need for putting in placea sound compliance regime, with binding
consequences, to ensure the effectiveness oftechno-legal and techno-financial provisions. It is
important to ensure that monitoring, verificationand compliance arrangements are in place bothat the National and State level. It will be theresponsibility of all stakeholders concerned, toimplement these provisions. Adoption of best
management practices like self-certification,social audit, and an external compliance regime
including audit by professional agencies, need to
be encouraged through development and designof tools such as IT-enabled monitoring software tosuit the DM systems in India, in consultation withvarious stakeholders and knowledge institutions
for adoption after due trial and validation.  

24

Enforcement
6.6.1   After having put the techno-legal andcompliance system in place, the States/UTs will
also ensure their enforcement by establishingan effective mechanism, under the provisions of
the Act.

7
Approach
7.1.1 Prompt and effective response minimises
loss of life and property. A caring approach forthe special needs of vulnerable sections is also
important. The existing and the new institutionalarrangements need to ensure an integrated, synergised
and proactive approach in dealing with any disaster. Thisis possible through contemporary forecasting andearly warning systems, fail-safe communication
and anticipatory deployment of specialised
response forces. A well-informed and preparedcommunity can mitigate the impact of disasters.

Role of the NEC
7.2.1 The NEC will coordinate response in theevent of any threatening disaster situation ordisaster. While disaster specific guidelines will be
formulated by NDMA, NEC may give directions tothe concerned Ministries/Departments of the GoI,
the State Governments and the State Authorities
regarding measures to be taken by them in
response to any specific threatening disastersituation or disaster.  

Response

Role of State, District and Local
Authorities
7.4.1 It is the primary responsibility of the State
Governments/SDMAs to monitor and assess
any developing situation and keep the NDMA
and NEC apprised of the same. They will also
be responsible to constantly evaluate their own
capabilities to handle that situation and project
the anticipated requirements for the Central
resources well in time. Inter-state assistanceand cooperation will be encouraged. The States/
UTs will also be responsible to develop their own
response potential progressively and complete
the process at the earliest. This will comprisetraining and equipping of State response forces,
community preparedness, training and creationof response caches at the District level. Districtlevel preparations will provide the cutting edge
to all response activities. Local authorities, PRIs
and ULBs will play a significant role in the entire
process, particularly in response and rescue
operations, relief and rehabilitation, awarenessgeneration and disaster preparedness, restorationof livelihood options and coordination with NGOs
and civil society.    

Role of the Nodal and Other Central
Standard Operating Procedures (SOPs)
Ministries and Departments
7.3.1 For various types of disasters, thenodal Ministry concerned will chart out detailed
Response Plans which will be integrated into the
National Response Plan. The NEC may coordinate
response in the event of any threatening disastersituation or disaster.

7.5.1 All Central Ministries, State Governments,
District Authorities and other stakeholders will
prepare SOPs in consonance with the Nationaland State Plans. SOPs will be prescribed for
activities like search and rescue, medical
assistance and casualty management,25

National Policy on Disaster Management 2009
evacuation, restoration of essential services
and communication at disaster sites, etc.  
The other important activities are provisionof food, drinking water, sanitation, clothing
and management of relief camps. Detailed
SOPs will also be devised by all concernedfor despatch, receipt and deployment ofCentral resources.

Levels of Disasters
7.6.1 The SOPs for determining the levelsof disasters and for issuing alerts to electronic
messaging systems of various agencies about
disasters have been formulated by MHA. These
SOPs will be reviewed periodically for disaster
response management in case of natural andman-made disasters.  

Incident Command System (ICS)
7.7.1 A traditional command structure exists
in the administrative hierarchy which manages
disasters in India. It has been planned to strengthen
and professionalise the same by drawing upon theprinciples of the ICS with suitable modifications.
The ICS is essentially a management system
to organise various emergency functions in astandardised manner while responding to any
disaster. It will provide for specialist incident
management teams with an incident commander
and officers trained in different aspects of incident
management, such as logistics, operations,planning, safety, media management, etc. It also
aims to put in place such teams in each Districtby imparting training in different facets of incident
management to District level functionaries. The
emphasis will be on the use of technologies andcontemporary systems of planning and execution
with connectivity to the joint operations room at
all levels.

26

First and other Key Responders
7.8.1 The role and importance of the community,
under the leadership of the local authorities, PRIs
and ULBs, being the bedrock of the process of
disaster response, is well recognised. For their
immediate support, there   are other importantfirst responders like the Police, SDRF, Fire andMedical Services. The NDRF will provide specialist
response training whenever required. In serious
situations, the resources of all NDRF battalions(18 teams per battalion), on as required basis,
will be concentrated in the shortest possible timein the disaster affected areas. Other important
responders will be the Civil Defence, Home
Guards and youth organisations such as NCC,NSS and NYKS. The deployment of the Armed
Forces will also be organised on as required
basis. Establishment/raising of NDRF should
progressively reduce  deployment of the Armed
Forces.   However, the Armed Forces would be
deployed only when the situation is beyond
the coping capacity of the State Government(s)and NDRF.

Medical Response
7.9.1 Medical response has to be quick andeffective. The execution of medical response plansand deployment of medical resources warrant
special attention at the State and District level inmost of the situations. The voluntary deploymentof the nearest medical resources to the disastersite, irrespective of the administrative boundaries,
will be emphasised. Mobile medical hospitals andother resources available with the centre will also
be provided to the States/UTs in a proactive manner.
Post-disaster management of health, sanitation andhygiene services is crucial to prevent an outbreak of
epidemics. Therefore, constant monitoring of any
such possibility will be necessary.  

Response

Animal Care
7.10.1 Animals both domestic and wild are
exposed  to the effects of natural and man-madedisasters. It is necessary to devise appropriate
measures to protect animals and find means
to shelter and feed them during disasters andtheir aftermath, through a community effort, tothe extent possible. It is pertinent to note thatmany communities have shown compassion
to animals during disasters, and these efforts
need to be formalised in the preparedness plans.
The Departments/Ministries of the GoI, such as
the Department of Animal Husbandry, Dairying,& Fisheries, Social Justice and Empowerment andthe States concerned should devise such measuresat all levels.  

Information and Media Partnership7.11.1 D u r i n g d i s a s t e r s i t u a t i o n s , t h edissemination of accurate information throughelectronic and print media is very important.
Regular press briefing by trained disastermanagement officials is essential. Training in
information management and accurate reporting
will be undertaken at all levels.

27

8

Relief and Rehabilitation

ApproachManagement of Relief Supplies

8.1.1 Relief is no longer perceived only as
gratuitous assistance or provision of emergency
relief supplies on time. It is on the contrary,viewed as an overarching system of facilitationof assistance to the victims of disaster for theirrehabilitation in States and ensuring social safety
and security of the affected persons.  The relief
needs to be prompt, adequate and of approved
standards. Guidelines defining minimum standardsof relief will be prepared by the NDMA.

8.3.1 Ensuring minimum standards of relief andspeedy management of supplies are importantfeatures of relief operations. SOPs will be put inplace for ensuring the procurement, packaging,transportation, storage and distribution ofrelief items, which needs to be carried out inan organised manner. The affected communityand local authorities need to work in tandem
in managing the relief camps. Guidelines will
be evolved to manage the donations received
in cash or kind to ensure transparency
and accountability.

Setting up of Temporary Relief Camps
8.2.1 DDMAs, especially in recurring disasterprone areas, may identify locations for setting
up temporary camps. Agencies to supply thenecessary stores will be identified in the predisaster phase. The use of premises of educational
institutions for setting up relief camps needs tobe discouraged.
8.2.2 The temporary relief camps will haveadequate provision of drinking water and bathing,sanitation and essential health care facilities.
Wherever feasible, special task forces fromamongst the disaster affected families will be
set up to explore the possibility of providing food
through community kitchens, and provision of
education through the restoration of schools
and anganwadis. Efficient governance systems
like entitlement cards, laminated identification
cards etc., will be developed as a part of uniform
humanitarian governance practices through therespective DDMAs.

Review of Standards of Relief
8.4.1 In most States, existing standards of relief
need to be reviewed to address the contemporaryneeds of communities affected by disasters. The
SDMAs may review the Relief Codes/manuals
and prepare DM Codes for prescribing the norms,
standards and criteria for the provision of relief inconformity with the guidelines of NDMA.

Temporary Livelihood Options andSocio-Economic Rehabilitation
8.5.1 In the aftermath of any major disaster,generally a demand always arises to generate
temporary livelihood options for the affected
community and the State Governments should
recognise this aspect in their DM planning
process. Any such option must ensure that theassets, infrastructure and amenities created29National Policy on Disaster Management 2009
are hazard resistant, durable, sustainable, andcost-efficient.

Provision of Intermediate Shelters
8.6.1 In the case of devastating disasters,
where extreme weather conditions can be lifethreatening or when the period of stay in temporary
shelters is likely to be long and uncertain,

30

construction of intermediate shelters with suitable
sanitary facilities will be undertaken to ensure areasonable quality of life to the affected people.
The design of such shelters will be eco-friendly
and in consonance with local culture. It would
be desirable for SDMAs to plan during periodsof normalcy, the layout of intermediate shelters
which is cost-effective and as per local needs withmulti-use potential.  

9Reconstruction and Recovery

Approach

Speedy Reconstruction

9.1.1 The approach to the reconstruction
process has to be comprehensive so as to convert
adversity into opportunity. Incorporating disaster
resilient features to ‘build back better’ will be theguiding principle. This phase requires the mostpatient and painstaking effort by all concerned.
The administration, the stakeholders and thecommunities need to stay focused on the needs ofthis phase, as, with the passage of time, the senseof urgency gets diluted. The appropriate choice oftechnology and project impact assessment needs
to be carried out to establish that the projects
contemplated do not create any side effects on thephysical, socio-cultural or economic environmentof the communities in the affected areas or in theirneighbourhood. Systems for providing psychosocial support and trauma counselling need to
be developed for implementation during thereconstruction and recovery phase.

9.3.1 Essential services, social infrastructure andintermediate shelters/camps will be establishedin the shortest possible time. For permanent
reconstruction, ideally, the work including theconstruction of houses must be completed within
two to three years.  Central Ministries/Departments
concerned and the State Governments should
create dedicated project teams to speed up thereconstruction process.

Owner Driven Reconstruction
9.2.1 Reconstruction plans and designing ofhouses need to be a participatory process involving
the government, affected community, NGOs and thecorporate sector. After the planning process is over,while owner driven construction is a preferred option,
participation of the NGOs and corporate sector will
be encouraged. Reconstruction programmes will bewithin the confines and the qualitative specifications
laid down by the Government.

9.3.2 Contingency plans for reconstruction inhighly disaster prone areas need to be drawn out
during the period of normalcy, which may include
architectural and structural designs in consultation
with the various stakeholders.  

Linking Recovery with Safe Development
9.4.1 Emphasis will be laid on plugging thegaps in the social and economic infrastructure andinfirmities in the backward and forward linkages.
Efforts will be made to support and enhance theviability of livelihood systems, education, healthcare facilities, care of the elderly, women andchildren, etc. Other aspects warranting attention
will be roads, housing, drinking water sources,
provision for sanitary facilities, availability ofcredit, supply of agricultural inputs, upgradation oftechnologies in the on-farm and off-farm activities,
storage, processing, marketing, etc.

31National Policy on Disaster Management 2009

Livelihood Restoration
9.5.1 State governments will have to layemphasis on the restoration of permanent

32

livelihood of those affected by disasters andspecial attention to the needs of womenheaded households, artisans, farmers and people
belonging to marginalised and vulnerable sections.

10

Capacity Development

Approach10.1.1 A strategic approach to capacity
development can be addressed effectively onlywith the active and enthusiastic participation of the
stakeholders. This process comprises awarenessgeneration, education, training, Research andDevelopment (R&D), etc. It further addresses
putting in place appropriate institutional framework,
management systems and allocation of resources
for efficient prevention and handling of disasters.
10.1.2 As some of these aspects have been
discussed in other chapters, this part elaborates
only awareness, disaster education and training. The
approach to capacity development will include:•

According priority to training for developing
community based DM systems for their
specific needs in view of the regional
diversities and multi-hazard vulnerabilities.

•

Conceptualisation of community based
DM systems at the National level througha consultative process involving theStates and other stakeholders with theState and Local level authorities in chargeof implementation.

•

Identification of knowledge -based
institutions with proven performance.  

•Promotion of International and Regional
cooperation.

•

Adoption of traditional and global bestpractices and technologies.

•

Laying emphasis on table-top exercises,
simulations, mock drills and developmentof skills to test the plans.

•

Capacity analysis of different disaster responsegroups at State/ District/Local levels.

National Priorities
10.2.1 In the field of capacity development,
priority will be given to training of DM officials,
functionaries, trainers and elected representatives
and communities.
10.2.2 DM training and orientation of professionals
like doctors, engineers, and architects will be given
due importance. Further, expansion of DM training
in educational institutions at all levels including
schools, with orientation towards practicalrequirements will be given due weightage.

Institutional Capacity Development
10.3.1 The NIDM will play an important role indeveloping and facilitating the implementationof the National training schedule for DM. It will
also be the nodal institution for Regional andInternational cooperation for training. There are anumber of renowned institutes in various States,
which are imparting training in DM. These   will  be  strengthened  with  financial  assistance  and  
such   efforts   will be replicated by States/UTs.
Also, the DM cells in all Administrative Training
Institutes, Police Academies, State Institutes of
Rural Development, the four Paramilitary Training
Centres of the NDRF and the National Training
Academy will contribute most significantly indeveloping DM related skills. The capacity ofexisting institutes needs to be upgraded inaccordance with Regional and Local requirements.

33

National Policy on Disaster Management 2009

Training of Communities
10.4.1 Building the capacity of communities,
as they are the first responders to disasters, isa significant part of the capacity development
process. It will include awareness, sensitisation,orientation and developing skills of communities
and community leaders. Assistance from NDRF, Civil
Defence and NGOs/other voluntary organisations
such as the Red Cross and Self-Help Groups will
be encouraged. The overall responsibility to give
impetus to leadership and motivation will rest withlocal authorities, PRIs and ULBs under the overall
guidance of State and District authorities.

Professional Technical Education
10.5.1 The curricula of graduate and postgraduatelevel courses in architecture, engineering, earthsciences and medicine will be reviewed by thecompetent authorities to include contemporary
knowledge related to DM in their respective
specialised fields.  The role of the NCC and Boy
Scouts may also be included in schools andcolleges for disaster management related work. At
the National level, the Ministry of Human Resource
Development will encourage the developmentof DM as a distinct academic discipline, in theuniversities and institutes of technical excellence.

DM Education in Schools
10.6.1 The introduction of the subject of DM, by
the Ministry of Human Resource Development,in the curriculum through the Central Board of
Secondary Education, will be extended to allschools through their Secondary Education Boards.
State Governments will also ensure the inclusionof disaster management curriculum throughState School Boards. The education content
will inculcate skill based training, psychologicalresilience and qualities of leadership. The role of
the NCC and Boy Scouts may also be included inschools and colleges for disaster management34

related work. Disaster education will aim atdeveloping a culture of preparedness and safety,
besides implementing school DM plans.

Training of Artisans
10.7.1 The upgradation of the skills of artisans isanother crucial component of the capacity building
process. The Central Ministries and Departments
concerned will ensure the availability of resources
for sustainable programmes to train artisans. The
States will be encouraged to promote this activity
vigorously. The guidance of Indian Institutesof Technology (IITs) and National Institutes ofTechnology (NITs) will be sought to plan these
programmes. The implementation will be assisted
by Industrial Training Institutes (ITIs) and otherCentral, Regional and State Vocational Training
Institutes. To ensure widespread participation,these programmes will be made available. Privatebuilders, contractors and NGOs are expected toplay a significant role in utilising trained artisans.

Training of Other Groups
10.8.1 Other professional groups such asparamedics, social workers, plumbers, sanitary
fitters and safety auditors also play a very importantrole in community based DM. These groups will also
be provided training through suitable programmes.

Licensing and Certification
10.9.1 Testing the skills of professionals becomes
important to ensure disaster resilient constructionin the built environment. The BIS will be requested
to develop uniform codes and specifications
with the help of professional bodies. The State
Governments will develop a scheme to ensure that
only adequately qualified professionals practise
within its territory.   The State Governments will
also enforce their own registration benchmarks
to uphold desirable standards commensurate with
their risk profile.  

11Knowledge Management

Approach11.1.1 Knowledge management will synthesise
the techno-centric organisational and ecologicalpractices to strengthen the process of informed
decision making. There is a need to create a
network of knowledge institutions in the field ofDM, to share their experiences and knowledge.
While knowledge creation will be primarily
carried out in specialised domains by nodal
institutions, the NIDM and other similar institutions
will play an important role in knowledge
synthesis, data management and dissemination
amongst its clientele groups, especially othertraining institutions.  

Synergetic Application of Science andTechnology
11.2.1 The Ministries of Science & Technology
and Earth Sciences and the other concerned
Departments of the GoI, in consultation withthe   NDMA, will identify the specific needs
and disciplines for research and also designate
domain-specific institutions depending on theirexpertise and knowledge base.

Knowledge Institutions
11.3.1 The NIDM and other institutions will
collaborate and bring together academic andtraining institutions at the National, Regional andInternational levels. These institutions will form
the knowledge repository in DM, and also strive
to enhance the knowledge base.

Knowledge Dissemination throughInformation and Communication
Technologies (ICT)
Indigenous Technical Knowledge (ITK)
11.4.1 A rich legacy of technical knowledge andexperience has been handed down right fromancient times by way of tried and tested practices
in facing disasters in different parts of India. A
concerted effort will be made to catalogue this
precious heritage, validate the products throughcontemporary systems and disseminate theresults to appropriate destinations and affected
communities with a view to adding value to their
DM effort.

India Disaster Resource Network(IDRN)
11.5.1 The existing framework of IDRN needs
to be further expanded to include the resourcesof various agencies, domains and disciplines at
the National level. The relevant information will
be placed in the public domain for easy retrieval,
usage and online updation.

India Disaster Knowledge Network(IDKN)
11.6.1 In acknowledgment of the need fora knowledge sharing platform on DM, and to
facilitate interaction and dialogue with relatedareas of expertise, the India Disaster Knowledge

35

National Policy on Disaster Management 2009
Network Portal has been set up. The portal
will serve as a tool to collect, collate anddisseminate information related to DM. It willconnect all Government Departments, statutory
agencies, research organisations/institutions
and humanitarian organisations to sharecollectively and individually their knowledge andtechnical expertise.  

Documentation of Best Practices andResearch
11.7.1 In the immediate aftermath of any disaster,
field studies will be carried out, with the help of36

experts, as an institutional measure. These studies
will concentrate on identifying gaps in the existing
prevention and mitigation measures and also
evaluate the status of preparedness and response.
Similarly, the lessons of past disasters will also
be compiled and documented. The recovery andreconstruction process will also be analysed forfurther refining the DM processes and training
needs. With the help of experts, NIDM will develop
a reference book for the development of casestudies and documentation of best practices ina professional manner. This knowledge will bedisseminated to all concerned within the country
and also shared with International organisations.

12

Research and Development

Approach12.1.1 Hitherto, a relief-centric approach has
confined the research and development effort torestricted domains. A primary concern of future
effort in these areas will be the identificationof broad research needs in respect of different
hazards in various parts of India and intensifying
demand driven research programmes. Regionaland International collaboration needs to be
encouraged.

Institutional Arrangements
12.2.1 The entire DM architecture needs tobe supported by a solid foundation of frontline
R&D efforts, offering sound and state-of-the-art
science and technology options in a user friendly
manner. A proactive strategy to enhance mutual
reinforcement and synergy amongst the various
groups and institutions working in the field of
DM will be recognised. Pooling and sharing ofperspectives, information and expertise will
be promoted by encouraging such efforts. The
identification of trans-disciplinary concerns
through a process of ‘integration’ of the talentpool groups will be facilitated and addressed bya standing mechanism at the National and Statelevel. Close interaction with Central Ministries
and Departments of  Agriculture, Atomic Energy,
Earth Sciences, Environment & Forests, Health,Industry, Science & Technology, and Space; and  
with academic institutions such as the IITs, NITs
and universities, etc., will be maintained.

Identification of Needs and Promotionof Research
12.3.1 A core group of experts from scientificand technical institutions has already been set
up by the NDMA to identify broad research needs
in disaster risk reduction. They will also identify
research partners/agencies/groups depending on
their knowledge base and expertise. Emphasis will
be laid on climate change and global warming withspecific relevance to India.  
12.3.2 The research on cross-cutting themes
including technological and man-made disasters
will be promoted in addition to natural disasters.
Research and Development in areas such as
micro-zonation and scenario development basedon simulation studies will also be encouraged toassess the short-term and long-term consequencesof these disasters.

37

13
13.1.1 The enunciation of this policy represents
merely the first step in the new journey. It is an
instrument that hopes to build the overarchingedifice within which specific actions need to betaken by various institutions and individuals at
all levels. A destination has been described, andhopefully, a direction shown. The stage has beenset, and the roadmaps now need to be rolled out.

The Road Ahead

13.1.5 This policy will have served its purpose,
if those that are charged with the responsibilityof carrying the task forward, find that their hands
have received from it, the strength and directionthat they need.

13.1.2 This document has endeavoured tocapture, in its essence, the vigorously enabling
environment, which the body politic has put inplace through an Act of Parliament that heralds
the onset of a different approach in dealing withdisasters that have, in the past taken a heavy tollof lives and properties and crippled the economic
base of communities. It also illustrates realisationof the fact that disasters not only cause a setback
to economic and developmental growth, but also
seriously affect the national security environment.
13.1.3 The central theme is the belief that adisaster intelligent and resilient community, duly
empowered by a newly created DM Structure,
working in cohesion multi-sectorally, will help
realise the national vision.
13.1.4 This is also an expression of the firm
conviction of the national leadership to makenecessary financial allocations for Prevention,
Preparedness and Mitigation rather than fruitlessly
incur post-disaster expenditure year after year.    

39

Abbreviations

ARMVs

–

Accident Relief Medical Vans

BIS–

Bureau of Indian Standards

CBOs

–

Community Based Organisations

CBRN

–

Chemical, Biological, Radiological and Nuclear

CCMNC

–

Cabinet Committee on Management of Natural Calamities

CCS–

Cabinet Committee on Security

CSR–     Corporate Social Responsibility

CRF–

Calamity Relief Fund

DDMA

–

District Disaster Management Authority

DM–

Disaster Management

GIS–

Geographic Information System

GoI–

Government of India

GPS–

Global Positioning System

HLC–

High Level Committee

HPC–

High Powered Committee

IAY–

Indira Awas Yojana

ICS–

Incident Command System

ICT–

Information and Communication Technology

IDRN

–

India Disaster Resource Network

IDKN

–

India Disaster Knowledge Network

IITs

–

Indian Institutes of Technology

IMC–

Inter-Ministerial Committee

IMG–

Inter-Ministerial Group

IT                   

–Information Technology

ITIs

–

Industrial Training Institutes

ITK–

Indigenous Technical Knowledge

MHA–

Ministry of Home Affairs

NCC–

National Cadet Corps

NCCF

–

National Calamity Contingency Fund

NCMC

–

National Crisis Management Committee

NDEM     

–National Database for Emergency Management

NDMA

–

National Disaster Management Authority

NDMF

–

National Disaster Mitigation Fund

41

National Policy on Disaster Management 2009

42

NDRF

–

National Disaster Response ForceNEC–

National Executive Committee

NGOs

–

Non-Governmental Organisations

NIDM

–

National Institute of Disaster Management

NITs

–

National Institutes of Technology

NSDI

–

National Spatial Data Infrastructure

NSS–

National Service Scheme

NYKS

–

Nehru Yuva Kendra Sangathan

PPP–

Public-Private Partnership

PRIs

–

Panchayati Raj Institutions

R&D–

Research and Development

SAARC

–

South Asian Association for Regional Cooperation

SDMA

–

State Disaster Management Authority

SDRF

–

State Disaster Response Force

SEC–

State Executive Committee

SOPs

–

Standard Operating Procedures

ULBs

–

Urban Local Bodies

UN–

United Nations

UTs–

Union Territories

WMO–

World Meteorological Organization

Magnum Custom Publishing (A Div. of Magnum Books Pvt Ltd)+91-9811097054
info@magnumbooks.org, www.magnumbooks.org

iv

GOVERNMENT OF INDIAMINISTRY OF HOME AFFAIRSNATIONAL POLICYONDISASTER MANAGEMENT
2009

NATIONAL DISASTER MANAGEMENT AUTHORITY