NATIONAL DISASTER MANAGEMENT PLAN

November 2019

NATIONAL DISASTER MANAGEMENT AUTHORITYMINISTRY OF HOME AFFAIRSGOVERNMENT OF INDIANational Disaster
Management PlanNational Disaster Management Plan
A publication of:
National Disaster Management Authority
Ministry of Home Affairs
Government of India
NDMA Bhawan
A-1, Safdarjung Enclave
New Delhi – 110 029

National Disaster Management Plan - 2016
Revised Edition - November, 2019

When citing this report the following citation should be used:
National Disaster Management Plan, 2019.
A publication of the National Disaster Management Authority, Government of India.
November 2019, New Delhi.

National Disaster
Management Plan

Na onal Disaster Management Authority
Ministry of Home Aﬀairs
Government of India
November, 2019çèkku ea=hPrime Minister
MESSAGE
It is a pleasure to learn that the National Disaster Management Authority (NDMA)
has prepared the updated and revised National Disaster Management Plan (NDMP).
The updated NDMP is an improvement over the earlier version. This plan will
enhance the understanding of stakeholders on disaster risks and will further
strengthen our capacity to recover in the wake of natural disasters.
Taking forward the country's agenda for achievement of targets set under Sendai
Framework for Disaster Risk Reduction - SFDRR (2015 -2030), the Plan has also
focused on achieving a coherence with other international agreements such as
Sustainable Development Goals (SDGs) and Paris Agreement on Climate Change(COP 21). The period of these agreements coincide with SFDRR. This coherence
will result in ensuring sustainable and climate resilient development that will
ultimately reduce disaster risk.
It is imperative to mainstream disaster risk reduction in developmental planning andto adopt an inclusive approach towards risk reduction to ensure sustainability ofdevelopmental initiatives and to widen its reach to cover every citizen.
The success of a Plan depends on its successful implementation. It is the
responsibility of all stakeholders, both government and non-government, to execute
this plan wisely and carry out responsibilities assigned to them in a time-boundmanner. This will also help in achieving the objectives of the National Plan.
I congratulate NDMA for coming out with a revised and more comprehensive
National Plan with some new relevant features to cover more disasters and adding
new dimensions of sustainable development and climate change. I am sure that thiswill help in making India more resilient to disasters and our nation will lead theworld in the field of disaster management.

(Narendra Modi)

x`g ea=hHome Minister
MESSAGEI am glad to note that India is among the leading countries
in the field of disaster management that has already put inplace many effective methodologies to deal with natural
disaster. The revised National Disaster Management Plan, I am
sure, will prove to be a strategic tool in further strengthening
disaster resilient development in the country.
It is a matter of great satisfaction that the revised version
has comprehensively analyzed all important aspects andincluded mainstreaming of disaster risk reduction in the National
Plan with an inclusive approach.
Such mitigation and risk reduction initiatives result in
decreased requirements in response, efforts and in saving lossof lives and properties. The revised plan has done justice to allphases of disaster management and stakeholders must ensure
they revolve around this Plan.
I convey my best wishes to NDMA for their effort andcongratulate all associated in this noble task.

(Amit Shah)

Ofﬁce : Ministry of Home Affairs, North Block, New Delhi-110001
Tel : 23092462, 23094686, Fax : 23094221
E-mail : hm@nic.in

jk"Vªh; vkink çcaèku çkfèkdj.kNational Disaster Management Authority

Hkkjr ljdkj
Government of India

Preface
A Disaster Management Plan needs to be a dynamic and actionable document, which needs tobe updated and revised periodically. Keeping this in mind, the existing National Plan of 2016 has
been revised enhancing it considerably improving the approach and adding new dimensions.
We hope that the revised version will prove to be more useful and effective in addressing the
difﬁcult challenges of disaster risk reduction facing Ministries/ Departments of Central
Government, States and UTs.
The revision of the existing National Disaster Management Plan 2016 started in April, 2017 witha consultative workshop. This was followed by several rounds of extensive consultations
internally and with different stakeholders and experts from different domains. After 3-4 rounds ofrevision process, a ﬁnal draft was also placed on the website of NDMA for one month inviting
comments and suggestions from all stakeholders including common people and was also
circulated to all Ministries / Departments and States / UTs for comments and inputs.
Incorporating their comments and suggestions suitably the revised Plan was ﬁnalized andapproved by Members of NDMA.
The hazard and vulnerability proﬁle of India is now well known. India's proneness to multiple
disasters caused by natural and human induced factors aggravated by climate change impacts
pose many threats and challenges for communities and agencies involved in management ofdisasters. With the enactment of Disaster Management Act 2005 and adoption of National
Policy on Disaster Management 2009, Government of India has established improved
institutional arrangements and DRR mechanisms to deal with any threatening disaster situation
or disaster.
In the year 2015, GOI adopted three landmark international agreements having bearing on
disaster management:(i)

Sendai Framework for Disaster Risk Reduction (SFDRR) in March 2015;(ii)

Sustainable Development Goals (SDGs) (2015-30) in September 2015; and(iii)

Paris Agreement on Climate Change at the 21st Conference of Parties (COP 21),
under the United Nations Framework Convention on Climate Change in December
2015.

These international agreements should not be seen in isolation. A sustainable development
needs to be disaster resilient and be adaptive to climate change impacts. Keeping this in mind
the revised plan has put special emphasis on establishing coherence between the threeinternational agreements with special consideration to Ten Point Agenda on DRR, enunciatedby Prime Minister during Asian Ministerial Conference on DRR (AMCDRR) in November 2016 in
New Delhi. This will help all concerned stakeholders in central government as well as in States
and UTs in striving to achieve the national goals.

/ Tel. : +91 11 26701700/ Fax : +91 11 26701831

Considering the signiﬁcance of climate change impacts on frequency and intensity of disasters,
Climate Change Risk Management has been included as a new and sixth thematic area fordisaster risk management in the responsibility framework, in addition to the existing ﬁvethematic areas, Understanding Risk, Inter Agency Coordination, Investing in DRR – Structural
Measures, Investing in DRR – Non-structural Measures and Capacity Development.
It goes without saying that the Disaster Management Plan can be effective only if it is
implemented in letters and spirit. For this there is a need to mainstream disaster risk reduction
measures in developmental plans and policies by Ministries / Departments of Government ofIndia and Governments of States and UTs. This plan will help in understanding the ways andstrategies to mainstream disaster risk reduction in their plans and policies as it provides anunderstanding on the same in new chapter added in this plan on mainstreaming.
The revised Plan also puts special emphasis on making the Plan inclusive. We are aware thatthe impacts of disasters are felt more by some sections of the community, owing to theirdifferential vulnerabilities and capacities due to physical, socio-economic and other reasons.
The revised NDMP has considered this aspect as well. A new chapter on Social Inclusion
addresses special considerations and suggests measures considering gender-based
vulnerabilities, conditions of SC/ST communities, the elderly, children and persons withdisabilities. This will help other stakeholders too in making their disaster management plansinclusive.
In order to synchronise the National Disaster Management Plan with the post-2015 international
agreements, 2030 has been envisaged as the ending year for long-term actions. The activities
envisaged as short, medium and long term ending in 2022, 2027 and 2030 respectively, havebeen included in this revised Plan. While some of the actions are a continuation from theprevious plan, for all practical purposes, the activities are concurrent with the three phases
overlapping in most cases. All responsibilities of Central Government Ministries andDepartments and those of State/Union Territories Governments have been placed with adeﬁnite time frame, which will start and go on simultaneously with different timelines ofcompletion.
While utmost care was taken with dedicated efforts in making the revisions, a Plan will always
have scope for improvement because of its dynamic nature. This version is an improvement
over the earlier one and with more experience by implementing this Plan, we will get to know
more insights to be incorporated in future versions. We hope that this Plan will help all concerned
stakeholders in their efforts and initiatives towards building a disaster resilient community andcountry. Suggestions and comments are always needed and will be welcomed.

Kamal Kishore

Dr. D. N. Sharma

Lt. Gen. N C Marwah (Retd)

G V V Sarma, IAS

MemberMemberMemberMember Secretary

NATIONAL DISASTER MANAGEMENT PLAN

Acknowledgements
The process of revising the National Disaster Management Plan started in April 2017 with aconsultative workshop with various stakeholders. This was followed by a series ofconsultations and reviews before the revised guidelines were ﬁnalised. The broad approach
was two-pronged – to improve upon the existing content and to add new dimensions to it.
We gratefully acknowledge the support and contribution of everyone directly or indirectly
involved in the mammoth exercise of revising the Plan.
Shri G. V. V. Sarma, Member Secretary, NDMA, Lt. Gen. N. C. Marwah (Retd.), Dr. D. N.
Sharma and Shri Kamal Kishore, Members, NDMA, and Dr. Pradeep Kumar, the then
Secretary in-charge, NDMA, gave valuable suggestions and inputs going through the drafts
and provided unwavering support and guidance.
Dr. V. Thiruppugazh, Additional Secretary (Policy and Plan), NDMA, who led the entire
process, brought novel ideas and dimensions to the Plan. His inputs and guidance, and his
critical review of each successive draft were instrumental in ﬁnalising this Plan. Shri Anuj
Tiwari, Senior Consultant (Policy, Plan and Mainstreaming) coordinated with all stakeholders,seeking their inputs and comments, provided technical inputs and supported the overallrevision process. Dr. Pavan Kumar Singh (Joint Advisor, Operations) and Shri Nawal
Prakash (Senior Research Ofﬁcer) provided technical support and inputs. Ofﬁcials andConsultants of NDMA, and subject experts also contributed to the content of sections
pertaining to their respective areas of expertise.
UNNATI - Organisation for Development Education provided technical support for preparing
this revised Plan. Dr. C. P. Geevan provided valuable technical support for the revision of
NDMP. Mr Binoy Acharya and his team members at UNNATI, also contributed to the revision
process from time to time.
Relevant matrices and the ﬁnal draft were also shared with all Ministries and Departments,
Government of India; and States and UTs. We would like to place on record theircontributions of valuable suggestions and comments, which were suitably incorporated in therevised Plan.

iNATIONAL DISASTER MANAGEMENT AUTHORITY

ii

NATIONAL DISASTER MANAGEMENT PLAN

Contents
Message from Hon’ble Prime Minister
Message from Hon’ble Home Minister
PrefaceAcknowledgements
Abbrevia ons
Execu ve Summary
1 Preliminaries
1.1
Ra onale
1.2
Paradigm Shi
1.3
Main Pillars of the NDMP
1.4
Legal Mandate
1.5
Three Post-2015 Global Frameworks—Disasters, Sustainable Development andClimate Change: Mutual Reinforcement and Coherence
1.6
Prime Minister’s Ten-Point Agenda for Disaster Risk Reduc on
1.7
Social Inclusion
1.8
Mainstreaming DRR
1.9
Vision1.10 Scope
1.11 Objec ves
1.12 Time Frames – Short, Medium and Long-Term
1.13 Types of Disasters
1.13.1 Natural Hazards
1.13.2 Human-Induced Disasters
1.14 Ins tu onal Framework
1.14.1 Na onal Level
1.14.2 State Level
1.15 Plan Implementa on
2 Hazard Risks and Challenges
2.1
Background2.2
Hazard Risks and Vulnerabili es
2.2.1
Mul -Hazard Vulnerability
2.2.2
Natural Hazards
2.2.3
Human-induced Hazards
2.2.4
Fire Risk
2.3
Regions/Areas Involving Mul ple States Requiring Special A en on
2.3.1
Himalayan Region
2.3.2
Coastal Areas
2.3.3
Riverine Regions
2.3.4
North East Region (NER)
2.3.5
Union Territories, Islands and Marine Assets
2.3.6
Arid/Semi-Arid and Drought-Prone Regions
2.4
Climate Change
2.4.1
Climate and Human-Induced Climate Change
2.4.2
IPCC Fi h Assessment Report

xix
xxvii
1
1
3
4
4
5
6
8
8
9
9
10
11
12
12
14
15
15
20
22
23
23
24
24
24
36
41
42
42
43
43
43
44
. 44
45
45
46

iii

NATIONAL DISASTER MANAGEMENT AUTHORITY

3

4

5

iv

2.4.3
India and Climate Change
47
2.4.4
Temperature
48
2.4.5
Impact on Indian Monsoon
48
2.4.6
Storm and Cyclones
49
2.4.7
Sea-Level Rise49
2.4.8
Coastal Inunda on due to Sea Level Rise49
2.4.9
Integra ng DRR and Climate Change Adapta on (CCA)50
2.5
Livestock – DRR Challenges
50
2.5.1
Background50
2.5.2
Global Approaches in Livestock Emergencies
51
2.5.3
Key Interven ons
51
2.5.4
Risk Management and Insurance
52
2.6
Environment and Wildlife Conserva on
52
2.6.1
Background52
2.6.2
Environmental Monitoring and Assessment
53
2.6.3
Protected Areas, Ecosystem Rehabilita on
53
2.6.4
India and Biodiversity Conserva on
54
2.6.5
DRR and Climate Change in Wildlife Ac on Plan
55
2.7
Disaster Management for Cultural Heritage Sites, their Precincts and Museums
56
2.8
Global Catastrophic Risks
57
Coherence and Mutual Reinforcement of Three Post-2015 Global Frameworks for DRR
59
3.1
Background59
3.2
Sendai Framework for DRR
59
3.2.1
New Emphasis on Disaster Risk Management59
3.2.2
Four Priori es; Seven Targets
61
3.3
Sustainable Development Goals (SDG) and Disaster Resilience62
3.4
COP21 Paris Agreement on Climate Change Ac on and Disaster Risk Reduc on
64
3.5
Coherence and Mutual Reinforcement—Thema c Area for DRR
66
Social Inclusion in Disaster Risk Reduc on
73
4.1
Background73
4.2
Gender Perspec ve and DRR
74
4.2.1
Gender-based Vulnerabili es
74
4.2.2
Sexual and Gender Minori es
76
4.3
Scheduled Castes and Scheduled Tribes
76
4.3.1
Scheduled Castes
77
4.3.2
Scheduled Tribes
77
4.4
Children78
4.5
Elderly79
4.6
Persons with Disabili es (PWD)
80
4.7
Making Disaster Risk Management Inclusive81
4.8
Responsibility Framework—Social Inclusion
83
Mainstreaming Disaster Risk Reduc on
89
5.1
Background89
5.2
Mainstreaming—Sub Thema c Areas for DRR
90
5.3
Improving the Awareness and Understanding of Risk
91
5.4
Legal Support and Disaster Governance91
5.5
Disaster Risk Transfer
91
5.6
Ensuring Social Inclusiveness in Disaster Risk Management92
5.7
Enabling Coherence and Mutual Reinforcement of Ini a ves under the Major Global
Frameworks for Enhancing Disaster Resilience92
5.8
Ins tu onal Arrangements and Capacity Development for Disaster Risk Management 93

NATIONAL DISASTER MANAGEMENT PLAN

6

7

5.9
Intra-Government Coordina on and Integra on
5.10 Budget Alloca ons
5.11 Changes in Project Appraisal
5.12 Se ng Targets, Timeframes and Indicators
5.13 Implementa on
Building Disaster Resilience – Responsibility Framework: Part-A, Prelude
6.1
Introduc on
6.2
Thema c Areas for DRR
6.2.1
Understanding Risk
6.2.2
Inter-Agency Coordina on
6.2.3
Inves ng in DRR – Structural Measures
6.2.4
Inves ng in DRR – Non-Structural Measures
6.2.5
Capacity Development
6.2.6
Climate Change Risk Management
Building Disaster Resilience – Responsibility Framework, Part-B
7.1
Cyclone and Wind
7.1.1
Understanding Risk
7.1.2
Inter-Agency Coordina on
7.1.3
Inves ng in DRR – Structural Measures
7.1.4
Inves ng in DRR – Non- Structural Measures
7.1.5
Capacity Development
7.1.6
Climate Change Risk Management
7.2
Flood
7.2.1
Understanding Disaster Risk
7.2.2
Inter-Agency Coordina on
7.2.3
Inves ng in DRR – Structural Measures
7.2.4
Inves ng in DRR – Non-Structural Measures
7.2.5
Capacity Development
7.2.6
Climate Change Risk Management
7.3
Urban Flood
7.3.1
Understanding Disaster Risk
7.3.2
Inter-Agency Coordina on
7.3.3
Inves ng in DRR – Structural Measures
7.3.4
Inves ng in DRR – Non-Structural Measures
7.3.5
Capacity Development
7.3.6
Climate Change Risk Management
7.4
Seismic/ Earthquakes
7.4.1
Understanding Disaster Risk
7.4.2
Inter-Agency Coordina on
7.4.3
Inves ng in DRR – Structural Measures
7.4.4
Inves ng in DRR – Non-Structural Measures
7.4.5
Capacity Development
7.5
Tsunami7.5.1
Understanding Disaster Risk
7.5.2
Inter-Agency Coordina on
7.5.3
Inves ng in DRR – Structural Measures
7.5.4
Inves ng in DRR – Non-Structural Measures
7.5.5
Capacity Development
7.5.6
Climate Change Risk Management
7.6
Landslides and Snow Avalanches
7.6.1
Understanding Disaster Risk

93
93
94
94
94
97
97
98
98
99
99
99
99
100
101
102
102
105
106
107
109
111
114
114
117
118
120
123
125
129
129
131
132
133
135
137
141
141
143
144
145
146
149
149
151
152
153
155
157
160
160
v

NATIONAL DISASTER MANAGEMENT AUTHORITY

7.7

7.8

7.9

7.10

7.11

7.12

7.13

7.14
vi

7.6.2
Inter-Agency Coordina on
7.6.3
Inves ng in DRR – Structural Measures
7.6.4
Inves ng in DRR – Non-Structural Measures
7.6.5
Capacity Development
7.6.6
Climate Change Risk Management
Drought
7.7.1
Understanding Risk
7.7.2
Inter-Agency Coordina on
7.7.3
Inves ng in DRR - Structural Measures
7.7.4
Inves ng in DRR – Non-Structural Measures
7.7.5
Capacity Development
7.7.6
Climate Change Risk Management
Cold Wave and Frost
7.8.1
Mi ga on Measures for People
7.8.2
Mi ga on Measures for Crops and Animals
7.8.3
Climate Change Risk Management
Thunderstorm, Lightning, Dust, Squall and Strong Winds
7.9.1
Understanding Risk
7.9.2
Inter-Agency Coordina on
7.9.3
Inves ng in DRR – Structural measures
7.9.4
Inves ng in DRR – Non-structural measures
7.9.5
Capacity Development
7.9.6
Climate Change Risk Management
Cloudburst and Hailstorm
7.10.1 Understanding Risk
7.10.2 Inter-Agency Coordina on
7.10.3 Inves ng in DRR – Structural Measures
7.10.4 Inves ng in DRR – Non-Structural Measures
7.10.5 Capacity Development
7.10.6 Climate Change Risk Management
Glacial Lake Outburst Flood (GLOF)
7.11.1 Understanding Risk
7.11.2 Inter-Agency Coordina on
7.11.3 Inves ng in DRR – Structural Measures
7.11.4 Inves ng in DRR – Non-Structural Measures
7.11.5 Capacity Development
7.11.6 Climate Change Risk Management
Heat Wave
7.12.1 Understanding Risk
7.12.2 Inter-Agency Coordina on
7.12.3 Inves ng in DRR – Structural Measures
7.12.4 Inves ng in DRR – Non-Structural Measures
7.12.5 Capacity Development
7.12.6 Climate Change Risk Management
Chemical (Industrial) Disasters
7.13.1 Understanding Risk
7.13.2 Inter-Agency Coordina on
7.13.3 Inves ng in DRR – Structural Measures
7.13.4 Inves ng in DRR – Non-Structural Measures
7.13.5 Capacity Development
Nuclear and Radiological Emergencies

162
163
163
166
168
171
171
174
175
176
179
181
185
185
185
186
188
188
188
190
190
193
193
195
195
196
196
197
197
199
200
200
201
202
202
203
204
207
207
209
212
213
214
216
219
219
221
222
223
225
228

NATIONAL DISASTER MANAGEMENT PLAN

897.14.1 Understanding Risk
7.14.2 Inter-Agency Coordina on
7.14.3 Inves ng in DRR – Structural Measures
7.14.4 Inves ng in DRR - Non-Structural Measures
7.14.5 Capacity Development
7.15 Biological and Public Health Emergencies (BPHE)
7.15.1 Understanding Risk
7.15.2 Inter-Agency Coordina on
7.15.3 Inves ng in DRR – Structural Measures
7.15.4 Inves ng in DRR – Non-Structural Measures
7.15.5 Capacity Development
7.15.6 Climate Change Risk Management
7.16 Fire Hazard
7.16.1 Understanding Risk
7.16.2 Inter-Agency Coordina on
7.16.3 Inves ng in DRR – Structural Measures
7.16.4 Inves ng in DRR – Non-Structural Measures
7.16.5 Capacity Development
7.17 Forest Fire Hazard
7.17.1 Understanding Risk
7.17.2 Inter-Agency Coordina on
7.17.3 Inves ng in DRR – Structural Measures
7.17.4 Inves ng in DRR – Non-Structural Measures
7.17.5 Capacity Development
7.17.6 Climate Change Risk Management
Preparedness and Response
8.1
Background8.2
Ins tu onal Framework
8.3
Na onal Early Warning System
8.3.1
Central Agencies Designated for Natural Hazard-Speciﬁc Early Warnings
8.3.2
Role of Central Agencies/ Departments
8.4
Coordina on of Response at Na onal Level
8.5
Fire and Emergency Services (F&ES)
8.6
Responding to Requests for Central Assistance from States
8.7Management of Disasters Impac ng more than one State
8.8
Response System Ac va on
8.9
Emergency Func ons and the Responsibili es: Centre and State
8.10 Responsibility Framework for Preparedness and Response
Recovery and Building Back Be er
9.1
Scope
9.2
Approach
9.3
Recovery Process
9.4
Early, Mid and Long-term Recovery
9.5
Reconstruc on
9.6
Co-ordina on of Reconstruc on
9.6.1
Central Government
9.6.2
State Government
9.6.3
Private Sector
9.6.4
Voluntary Organiza ons and Interna onal Aid Agencies
9.7
Rehabilita on
9.7.1
Background

228
229
230
230
231
235
235
237
238
240
242
246
249
249
250
250
251
252
253
253
255
256
257
259
261
263
263
264
265
265
266
266
267
268
268
268
269
271
291
291
292
292
295
296
296
296
296
297
297
297
297
vii

NATIONAL DISASTER MANAGEMENT AUTHORITY

10

11

12

13

14

viii

9.7.2
Physical Rehabilita on
9.7.3
Reloca on
9.7.4
Social Rehabilita on
9.7.5
Revival of Educa onal Ac vi es
9.7.6
Rehabilita on of the Elderly, Women, Children and PWD
9.7.7
Economic Rehabilita on
9.7.8
Psychological Rehabilita on
9.7.9
Restora on of Damaged Cultural Heritage Sites, their Precincts and Museums
9.8
Fund Mobiliza on
9.8.1
Background
9.8.2
Mobilizing, Disbursement and Monitoring
9.8.3
Recovery of Reconstruc on Costs
Capacity Development – An Overview
10.1 Background10.2 NIDM, NDRF and Other Ins tu ons
10.3 Capacity Development of Local Bodies – Rural and Urban
10.4 Training of Communi es
10.5 Disaster Resource Networks – Na onal, State and District
10.6 Capacity Development Themes
Financial Arrangements
11.1 Background11.2 Na onal Disaster Response Fund11.3 State Disaster Response Fund11.4 Na onal Disaster Mi ga on Fund11.5 Recommenda ons of the Fourteenth Finance Commission
11.6 Statutory Provisions
11.6.1 Financing Preven on, Mi ga on, and Preparedness
11.6.2 Alloca on by Ministries and Departments
11.6.3 Provisions in the Act for Disaster Risk Reduc on
11.7 Implementa on of DRR – Financial Aspects
11.7.1 Public Funded Schemes
11.7.2 Flexi Funds as a part of Centrally Sponsored Schemes
11.7.3 Externally Aided Projects
11.8 Risk Transfer and Insurance
Strengthening Disaster Risk Governance12.1 Background12.2 Sendai Framework and Strengthening Disaster Risk Governance12.3 Responsibility Framework for Strengthening Disaster Risk GovernanceInterna onal Coopera on
13.1 Par cipa on in Interna onal Eﬀorts
13.2 Accep ng Foreign Assistance
13.3 Accep ng Mul lateral Assistance
13.4 Fostering Partnerships
Maintaining, Monitoring and Upda ng the Plan
14.1 Background14.2 Training and Drills
14.3 Tes ng the Plan and Learning to Improve14.4 Monitoring by Central Ministries/Depts. and States/UTs
14.5 Revise/ Update

298
298
298
299
299
299
300
300
301
301
301
303
305
305
306
307
307
307
308
311
311
311
312
313
313
314
314
314
314
316
316
316
317
317
319
319
320
321
327
327
327
327
328
329
329
329
330
330
330

NATIONAL DISASTER MANAGEMENT PLAN

References
Annexure - I: List of NDMA’s Disaster Management Guidelines
Annexure - II: Hazard Risk Maps for India
Earthquake Hazard Map
Wind Hazard Map
Flood Hazard Map
Landslide Incidence Map
Thunderstorm Incidence Map
Annexure - III: Sendai Framework Indicators

333
337
339
340
341
342
343
344
345

List of Figures
Figure 1-1: Disaster Management Cycle
Figure 1-2: Time Frames—Short, Medium and Long Term
Figure 1-3: Na onal-level disaster management - basic ins tu onal framework
Figure 1-4: State-level disaster management - basic ins tu onal framework
Figure 3-1: Sendai Framework for Disaster Risk Reduc on - 7 Global Targets
Figure 3-2: Seventeen Sustainable Development Goals
Figure 3-3: Coherence and mutual reinforcement of SDGs and Sendai Framework
Figure 3-4: Main elements of the COP21, Paris Agreement on Climate Change
Figure 3-5: Common concerns of climate change adapta on and disaster risk reduc on
Figure 3-6: Post-2015 Global Frameworks—Coherence and Mutual Reinforcement within
Na onal Eﬀorts
Figure 3-7: Envisaging coherence and Mutual Reinforcement of SDGs and Sendai Framework
Figure 3-8: Envisaging coherence and mutual reinforcement of SDGs and COP21 for climatechange ac on

2
11
15
20
61
63
63
64
65
67
68
69

List of Tables
Table 1-1: Categories of Natural Hazards
Table 1-2: Key Na onal-Level Decision-Making Bodies for Disaster Management
Table 1-3: Nodal Ministry for Management/ Mi ga on of Diﬀerent Disasters
Table 2-1: India - General proﬁleTable 2-2: Classiﬁca on used in India for tropical cyclones
Table 2-3: Status of the PA Network in India (July 2017)
Table 3-1: India’s na onal ini a ves rele vant for DRR across the three Global Frameworks
Table 7-1: Snow and frost – Illustra ve Crop Protec on Measures
Table 8-1: Central Agencies Designated for Natural Hazard-Speciﬁc Early Warnings
Table 9-1: Major Steps of the Recovery Process and the Key Processes Involved
Table 9-2 Recovery Stages
Table 9-3: Important aspects in mobilizing and managing the funds of a recovery programme
Table 10-1: Capacity Development for DRR Themes - Centre and State

12
16
18
23
25
55
69
186
265
294
295
302
308

ix

NATIONAL DISASTER MANAGEMENT AUTHORITYx

NATIONAL DISASTER MANAGEMENT PLAN

Abbrevia ons
AAI
ADWR
AERB
AGD
AHD
AIAI
AICTE
ALTM
AMCDRR
ANM
AP
AR5
ARG
ARHD
ASHA
ASI
ASSOCHAM
ATI
AWS
AYUSH
BAI
BBB
BIS
BMTPC
BPHE
BRO
BSF
CADA
CAPF
CARA
CBRI
CBRN
CBSE
CCA
CCM
CCS
CDEF
CDMM
CDRC
CEDMM
CFI
CIDC
CII

:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:

Airports Authority of India
Airborne Doppler Weather Radar
Atomic Energy Regulatory Board
Agriculture Department
Animal Husbandry Department
All India Associa on of Industries
All India Council of Technical Educa on
Airborne Laser Terrain Mapping
Asian Ministerial Conference on Disaster Risk Reduc on
Auxiliary Nurse Midwife
Andhra Pradesh
IPCC's Fi h Assessment Report
Automa c Rain Gauge
Archaeology Department
Accredited Social Health Ac vist
Archaeological Survey of India
Associated Chambers of Commerce and Industry of India
Administra ve Training Ins tute
Automa c Weather Sta ons
Ministry of Ayurveda, Yoga and Naturopathy, Unani, Siddha and Homoeopathy
Builders Associa on of India
Build Back Be er
Bureau of Indian Standards
Building Materials and Technology Promo on Council
Biological and Public Health Emergencies
Border Roads Organisa on
Border Security ForceCoastal Area Development Authority
Central Armed Police Forces
Central Adop on Resource Authority
Central Building Research Ins tute, Roorkee
Chemical, Biological, Radiological and Nuclear
Central Board of Secondary Educa on
Climate Change Adapta on
Climate Change Mi ga on
Cabinet Commi ee on Security
Civil DefenceCentre for Disaster Mi ga on and Management, Vellore
Central Drought Relief Commissioner
Centre of Excellence in Disaster Mi ga on and Management/IIT-Roorkee
Construc on Federa on of India
Construc on Industry Development Council
Confedera on of Indian Industry

xix

NATIONAL DISASTER MANAGEMENT AUTHORITY

CIMFR
CISF
CMG
CoA
COP
COR
CRIDA
CRPF
CRRI
CRZ
CSIR
CSO
CSS
CUD
CWC
CWPRS
CWWG
CZMA
DAE
DCPU
DDMA
DEOC
Dept.
DFIN
DFRI
DGM
DISCOM
DMC
DMD
DMP
DOS
DOT
DRD
DRDO
DRM
DRR
DSJE
DSS
DTRL
DWR
EDD
EFD
EHRA
EIA
EOC
EREC
EWS
F&ES
xx

:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:

Central Ins tute of Mining & Fuel ResearchCentral Industrial Security Force
Crisis Management GroupCouncil of Architecture
Conference of the Par es
Commissioner of Relief
Central Research Ins tute for Dryland Agriculture
Central Reserve Police ForceCentral Road Research Ins tute
Coastal Regula on Zone
Council of Scien ﬁc and Industrial ResearchCentral Sta s cs Oﬃce
Centrally Sponsored Schemes
Culture Department
Central Water Commission
Central Water and Power Research Sta on
Crop Weather Watch Group
Coastal Zone Management Authority
Department of Atomic Energy
District Child Protec on Unit
District Disaster Management Authority
District Emergency Opera on Center
Department
Finance Department
Disaster Risk Financing Instruments
Directorates of Geology and Mining
Power Distribu on Companies
Drought Monitoring Cell
Disaster Management Department
Disaster Management Plan
Department of Space
Department of Telecommunica ons
Department of Rural Development
Defence Research and Development Organiza on
Disaster Risk Management
Disaster Risk Reduc on
Social Jus ce and Empowerment Department
Decision Support System
Defense Terrain Research Laboratory
Doppler Weather Radar
Educa on Department
Forest and Environment Department
Earthquake Hazard and Risk Assessment
Environment Impact Assessment
Emergency Opera ons Centre
Earthquake Risk Evalua on Centre
Early Warning System
Fire and Emergency Services

NATIONAL DISASTER MANAGEMENT PLAN

FAO
FC
FCI
FCSD
FC-XIIIFC-XIV
FICCI
FIHD
FRI
FSI
GACC
GAR
GDP
GLOF
GOI
GRM
GSI
HAP
HAZCHEM
HAZMAT
HEOC
HF
HFA
HFWD
HLC
HP
HRVCA
IAEA
IAF
IAP
IBA
IBTA
ICAR
ICG
ICMBA
ICR-ER
ICT
IDRN
IDS
IDSP
IEC
IERMON
IHR
IIA
IIE
IIT
IMD
INCOIS

:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:

Food and Agriculture Organisa on
Finance Commission
Food Corpora on of India
Food and Civil Supply Department
Thirteenth (13th) Finance Commission
Fourteenth (14th) Finance Commission
Federa on of Indian Chambers of Commerce and Industry
Department for Fisheries (or relevant dept.)
Forest Research Ins tute
Forest Survey of India
Global Anthropogenic Climate Change
Global Assessment Report
Gross Domes c Product
Glacial Lake Outburst Flood
Government of India
Grievance Redress Mechanism
Geological Survey of India
Heat (Wave) Ac on Plan
Hazardous Chemicals
Hazardous Material
Health Emergency Opera on Centre
High Frequency
Hyogo Framework for Ac on
Health & Family Welfare Department
High Level Commi ee
Himachal Pradesh
Hazard Risk, Vulnerability and Capacity Assessment
Interna onal Atomic Energy Agency
Indian Air Force
Incident Ac on Plan
Important Bird Areas (IBA)
Industry/ Business/ Trade Associa on(s)Indian Council of Agricultural Research
Indian Coast Guard
Important Coastal and Marine Biodiversity Areas
Integrated Control Room for Emergency Response
Informa on Communica on Technology
Indian Disaster Resource Network
Integrated Defense Staﬀ
Integrated Disease Surveillance ProgrammeInforma on Educa on Communica on
Indian Environmental Radia on Monitoring Network
Indian Himalayan Region
Indian Ins tute of Architects
Indian Ins tute of Entrepreneurship
Indian Ins tute of Technology
India Meteorological Department
Indian Na onal Centre for Ocean Informa on Services
xxi

NATIONAL DISASTER MANAGEMENT AUTHORITY

IND
INDC
INDD
INSARAG
IPCC
IPRD
IRC
IRD
IRDA
IRS
IRT
ISO
ISRO
ITBP
IWRM
JJB
LBSNAA
LSA
M&E
MAFW
MAH
MAI
MANAGEMCA
MCAFPD
MCF
MCM
MCOAL
MCOM
MDWS
MEA
MEITY
MFAHD
MFIN
MFPI
MHA
MHFW
MHIPE
MHRD
MHUA
MLBE
MMSME
MNCFC
MNRE
MOCA
MOCI
MOCU
MOD
xxii

:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:

Improvised Nuclear Device
Intended Na onally Determined Contribu ons
Industries Department
Interna onal Search and Rescue Advisory GroupInter-Governmental Panel on Climate Change
Informa on and Public Rela ons Department
Indian Roads Congress
Irriga on Department
Insurance Regulatory and Development Authority
Incident Response System
Incident Response TeamInterna onal Organiza on for Standardiza on
Indian Space Research Organisa on
Indo Tibetan Border Police
Integrated Water Resources Management
Juvenile Jus ce Board
Lal Bahadur Shastri Na onal Academy of Administra on
Landslide and Snow Avalanches
Monitoring and Evalua on
Ministry of Agriculture and Farmers Welfare
Major Accident Hazard
Moisture Adequacy Index
Na onal Ins tute of Agricultural Extension Management
Ministry of Corporate Aﬀairs
Ministry of Consumer Aﬀairs, Food and Public Distribu on
Ministry of Chemicals and Fer lizers
Million Cubic Metres
Ministry of Coal
Ministry of Communica ons
Ministry of Drinking Water and Sanita on
Ministry of External Aﬀairs
Ministry of Electronics and Informa on Technology
Ministry of Fisheries, Animal Husbandry and Dairying
Ministry of Finance
Ministry of Food Processing Industries
Ministry of Home Aﬀairs
Ministry of Health and Family Welfare
Ministry of Heavy Industries and Public Enterprises
Ministry of Human Resource Development
Ministry of Housing and Urban Aﬀairs
Ministry of Labour and Employment
Ministry of Micro, Small and Medium Enterprises
Mahalanobis Na onal Crop Forecast Centre
Ministry of New and Renewable Energy
Ministry of Civil Avia on
Ministry of Commerce and Industry
Ministry of Culture
Ministry of Defence

NATIONAL DISASTER MANAGEMENT PLAN

MOEFCC
MOES
MOIB
MOJS
MOLJ
MOM
MOPA
MOPR
MOR
MORD
MOSH
MOSPI
MOST
MoU
MP
MPFI
MPNG
MPPGP
MPWR
MRTH
MSDE
MSIHC
MSJE
MSTL
MTEX
MTOU
MTRA
MWCD
MYAS
NABARD
NAC
NAPCC
NBCC
NCC
NCDC
NCERT
NCMC
NCMRWF
NCPCR
NDC
NDMA
NDMP
NDRF
NDVI
NEC
NER
NERC

:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:

Ministry of Environment, Forest and Climate Change
Ministry of Earth Sciences
Ministry of Informa on and Broadcas ng
Ministry of Jal ShakMinistry of Law and Jus ce
Ministry of Mines
Ministry of Parliamentary Aﬀairs
Ministry of Panchaya Raj
Ministry of Railways
Ministry of Rural Development
Ministry of Shipping
Ministry of Sta s cs and Programme Implementa on
Ministry of Science and Technology
Memorandum of Understanding
Madhya Pradesh
Ministry of Food Processing Industries
Ministry of Petroleum and Natural Gas
Ministry of Personnel, Public Grievances and Pensions
Ministry of Power
Ministry of Road Transport and Highways
Ministry of Skill Development and Entrepreneurship
Manufacture Storage and Import of Hazardous Chemicals
Ministry of Social Jus ce and Empowerment
Ministry of Steel
Ministry of Tex les
Ministry of Tourism
Ministry of Tribal Aﬀairs
Ministry of Women and Child Development
Ministry of Youth Aﬀairs and Sports
Na onal Bank for Agriculture and Rural Development
Na onal Academy of Construc on
Na onal Ac on Plan on Climate Change
Na onal Buildings Construc on Corpora on
Na onal Cadet Corps
Na onal Centre for Disease Control
Na onal Council of Educa onal Research and Training
Na onal Crisis Management Commi ee
Na onal Centre of Medium Range Weather Forecas ng
Na onal Commission for Protec on of Child Rights
Na onally Determined Contribu ons
Na onal Disaster Management Authority
Na onal Disaster Management Plan
Na onal Disaster Response Force
Normalized Diﬀeren al Vegeta on Index
Na onal Execu ve Commi ee
North East Region
Na onal Emergency Response Centre

xxiii

NATIONAL DISASTER MANAGEMENT AUTHORITY

NGO
NHAI
NHWIS
NICMARNIDM
NIESBUD
NIO
NIRD
NISA
NITI
NITTTR
NLRTI
NLSDA
NPDM
NRAA
NRE
NRSC
NSDA
NSDC
NSG
NSS
NWDA
NYKS
O&M
OHSAS
PED
PG
PRD
PRI
PWD
R&D
RD
RDD
RDSO
RMI
RO
RTSMN
SAARC
SASE
SAU
SBSE
SCPS
SDG
SDMA
SDMC
SDRF
SDRN

xxiv

:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:

Non-Governmental Organisa ons
Na onal Highways Authority of India
Na onal Hazardous Waste Informa on System
Na onal Ins tute of Construc on Management and Research
Na onal Ins tute of Disaster Management
Na onal Ins tute for Entrepreneurship and Small Business Development
North Indian Ocean
Na onal Ins tute of Rural Development
Na onal Ins tute of Security Academy
Na onal Ins tu on for Transforming India
Na onal Ins tute of Technical Teachers' Training and Research
Na onal-Level Research and Technical Ins tu ons
Na onal Level Skill Development Agencies
Na onal Policy on Disaster Management
Na onal Rainfed Area Authority
Nuclear and/or Radiological Emergency
Na onal Remote Sensing Centre
Na onal Skill Development Agency
Na onal Skill Development Corpora on
Na onal Security Guard
Na onal Service Scheme
Na onal Water Development Agency
Nehru Yuva Kendra Sangathan
Opera on and MaintenanceOccupa onal Health and Safety Assessment Series
Power/ Energy Department
Postgraduate
Panchaya Raj Department
Panchaya Raj Ins tu ons (District, Block and Village levels)
Persons with Disabili es
Research and Development
Revenue Department
Radiological Dispersal Device
Research Designs and Standards Organiza on
Risk Management and Insurance
Reverse Osmosis
Real Time Seismic Monitoring Network
South Asian Associa on for Regional Coopera on
Snow and Avalanche Study Establishment
State Agricultural University
State Board of Secondary Educa on
State Child Protec on Society
Sustainable Development Goals
State Disaster Management Authority (or equivalent Nodal Agency)
State Drought Monitoring Cell
State Disaster Response ForceState Disaster Resource Network

NATIONAL DISASTER MANAGEMENT PLAN

SEB
SEC
SEOC
SERC
SFAC
SFDRR
SHG
SIDM
SIHFW
SIRD
SLBC
SLRTI
SLSDA
SOG
SOP
SPCB
SPWD
SREX

:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:

SRSAC
SSB
T1
T2
T3
TAA
TN
TOD
ToT
TRAD
UDD
UFDM
UGC
ULB
UN
UNCRPDUNDP
UNESCOUNFCCCUNISDR

:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:
:

UP
USDDM
UT
VHF
WAP
WCD
WCTn
WIHG
WMO
WSD

:
:
:
:
:
:
:
:
:
:

State Electricity Board
State Execu ve Commi ee
State Emergency Opera on Centre
Structural Engineering Research Centre
Standing Fire Advisory Council
Sendai Framework for Disaster Risk Reduc on
Self Help GroupState Ins tute of Disaster Management
State ins tute of Health and Family WelfareState Ins tute of Rural Development
State Level Bankers' Commi ee
State-Level Research and Technical Ins tu ons
State Level Skill Development Agencies
Standard Opera ng Guidelines
Standard Opera ng ProcedureState Pollu on Control Board
State Public Works Department
IPCC Special Report on Managing the Risks of Extreme Events to
Advance Climate Change Adapta on
State Remote Sensing Applica on Centre
Sashastra Seema Bal
Short-Term, ending 2022
Medium-Term, ending 2027
Long-Term, ending 2030
Thema c Area for Ac on
Tamil Nadu
Tourism Department
Training of Trainers
Transport Department
Urban Development Department
Urban Flood Disaster Management
University Grants Commission
Urban Local Bodies (municipal corpora ons, municipali es, nagarpalikas)
United Na ons
UN Conven on on the Rights of Persons with Disabili es
United Na ons Development Programme
United Na ons Educa onal, Scien ﬁc and Cultural Organiza on
United Na ons Framework Conven on on Climate Change
United Na ons Interna onal Strategy for Disaster Reduc on,
now UN Oﬃce for DRR
U ar Pradesh
Urban Storm Drainage Design ManualUnion Territory
Very High Frequency
Wildlife Ac on Plan
Women and Child Department
Wind Chill Eﬀec ve Minimum Temperature
Wadia Ins tute of Himalayan Geology
World Meteorological Organiza on
Water and Sanita on Department
xxv

NATIONAL DISASTER MANAGEMENT AUTHORITY

xxvi

NATIONAL DISASTER MANAGEMENT PLAN

Execu ve Summary
Background
The Disaster Management Act, 2005 (DM Act 2005) lays down ins tu onal and coordina on
mechanism for eﬀec ve Disaster Management (DM) at the na onal, state, district and local levels. As
mandated by this Act, the Government of India created a mul - ered ins tu onal system consis ngof the Na onal Disaster Management Authority (NDMA) headed by the Prime Minister, the State
Disaster Management Authori es (SDMA) headed by the respec ve Chief Ministers and the District
Disaster Management Authori es (DDMA) headed by the District Collectors/ District Magistrate andco-chaired by Chairpersons of the local bodies. In each State/ Union Territory (UT), there will be one
nodal agency, for coordina on of disaster management, which is referred in the plan as ‘Disaster
Management Department’ (DMD). The ins tu onal arrangements have been set up consistent withthe paradigm shi from the relief-centric approach of the past to a proac ve, holis c and integrated
approach for Disaster Risk Reduc on (DRR) by way of strengthening disaster preparedness, mi ga on,and emergency response.
The Na onal Disaster Management Plan (NDMP) provides a framework and direc on to thegovernment agencies for all phases of disaster management cycle. The NDMP is a “dynamic
document” in the sense that it will be periodically improved keeping up with the emerging global bestprac ces and knowledge base in disaster management. It is in accordance with the provisions of the
DM Act 2005, the guidance given in the Na onal Policy on Disaster Management (NPDM) 2009, andthe established na onal prac ces.
The NDMP recognizes the need to minimize, if not eliminate, any ambiguity in the responsibility
framework. It, therefore, speciﬁes who is responsible for what at diﬀerent stages of managing
disasters. It is meant to be implemented in a ﬂexible and scalable manne r in all phases of disastermanagement: a) Mi ga on (preven on and risk reduc on), b) Preparedness, c) Response and d)
Recovery (immediate restora on and build -back be er). While the names of ministries/ departmentsof the Centre and State/UT having speciﬁc roles and responsibili es are men oned in the Plan, in thespirit of the DM Act 2005 and the exigencies of humanitarian response, every ministry/ department
and agency is expected to contribute to DM going beyond their normal rules of business.

Main Pillars of NDMPThe NDMP, in a sense, has ﬁve main pillars:
I.
II.

III.
IV.
V.

Conforming to the na onal legal mandates—the DM Act 2005 and the NPDM 2009
Par cipa ng proac vely to realising the global goals as per agreements to which India issignatory—Sendai Framework for DRR, Sustainable Development Goals (SDGs) and
Conference of Par es (COP21) Paris Agreement on Climate Change
Prime Minister’s Ten Point Agenda for DRR ar cula ng contemporary na onal priori es
Social inclusion as a ubiquitous and cross-cu ng principle
Mainstreaming DRR as an integral feature

The NDMP of 2016 was the world’s ﬁrst ever na onal plan explicitly aligned with the Sendai
Framework. Once again, taking a global lead, the revised plan a empts to incorporate the emerging
global approach of bringing about coherence and mutual reinforcement of the three Post-2015 Global

xxvii

NATIONAL DISASTER MANAGEMENT AUTHORITY

Frameworks. The revised plan also incorporates the Ten Point Agenda on DRR, enunciated by Prime
Minister during Asian Ministerial Conference on DRR (AMCDRR) in November 2016 in New Delhi.
The period envisaged as ‘Long-Term’ in this revised plan is co-terminus with year 2030, the ending
year of the major post-2015 global frameworks. The ac vi es running concurrently in most cases aregrouped under overlapping me frames—short, medium, and long-term, ending by 2022, 2027 and2030 respec vely in addi on to the recurring/ regular (i.e., rou ne) ones. They do not signify any orderof priority. The measures men oned here are indica ve and not exhaus ve. Based on global prac cesand na onal experiences, the plan will incorporate changes during the periodic reviews and updates.

VisionMake India disaster resilient across all sectors, achieve substantial and inclusive disaster risk
reduction by building local capacities starting with the poor and decreasing significantly theloss of lives, livelihoods, and assets in different forms including economic, physical, social,
cultural, and environmental while enhancing the ability to cope with disasters at all levels.

Mul -Hazard Vulnerability
India, due to its, physiographic and clima c condi ons is one of the most disaster-prone countries of theworld. Vulnerability to human-induced disasters/emergencies also exists. The NDMP covers disastermanagement cycle for all types of hazards—natural and human-induced. Heightened vulnerabili es
to disaster risks can be related to increasing popula on, urbanisa on, industrialisa on, development
within high-risk zones, environmental degrada on, and climate change . Besides the natural factors
and anthropogenic climate change, various human ac vi es could also be responsible for aggravatedimpacts and increased frequency of disasters.

Building Resilience
The role of the central agencies is to support the disaster-aﬀected State or the UT in response torequests for assistance. The central agencies will play a pro -ac ve role in disaster situa ons. In thedomains of DM planning, preparedness, and capacity building, the central agencies will constantly
work to upgrade Indian DM systems and prac ces as per global trends. The priori es of the Sendai
Framework and those related to DRR in SDGs and Paris Agreement have been integrated into theplanning framework for Disaster Risk Reduc on under the following Thema c Areas for Disaster Risk
Reduc on:
1.
2.
3.
4.
5.
6.

Understanding Risk
Inter-Agency Coordina on
Inves ng in DRR – Structural Measures
Inves ng in DRR – Non-Structural Measures
Capacity Development andClimate Change Risk Management

While all these themes had been included previously in the NDMP, in this version, they have been
elaborated in greater detail. Besides, there are chapters describing three cross -cu ng themes:a) Coherence and Mutual Reinforcement for DRR of the Post-2015 Global Frameworksb) Social Inclusion andc) Mainstreaming DRR
xxviiiNATIONAL DISASTER MANAGEMENT PLAN

Response
Response measures are those taken immediately a er receiving early warning, an cipa ng an
impending disaster, or post -disaster in cases where an event occurs without warning. The primary
goal of response to a disaster is saving lives, protecting property, environment, and mee ng basic
needs of human and other living beings a er the disaster. The immediate focus will be on search andrescue of those aﬀected and to evacuate those likely to be aﬀected by the disaster or secondary
disaster that is likely to happen. In the sec on on response, roles, func on and responsibili es ofministries and agencies that have a key role to play are described. Since contexts, knowledge base,and technologies change, DM plans must be updated periodically to reﬂect any changes in the key
roles envisaged to various ministries or agencies.
At the na onal level, the central government has assigned nodal responsibili es to speciﬁc ministries
for coordina ng disaster-speciﬁc responses. The disaster-speciﬁc nodal ministry will ensure liaison
with the state government where the disaster has occurred and coordina on among various relevant
ministries and departments to provide quick and eﬃcient response. The state government will
ac vate the Incident Response Teams (IRT) at state, district, or the block level as required. Diﬀerent
central ministries and departments will assist in the response eﬀorts as per re quest from the State/
UT. The various agencies whose responsibili es are deﬁned in detailed DM plans for the State/ UT anddistrict will be responsible for speciﬁc response measures. The nodal agency for coordina on of
response at state will be DMD and at the district level DDMA supported by other agencies.

Recovery and Building Back Be er
Globally, the approach towards post-disaster restora on and rehabilita on has shi ed to one ofbuilding back be er. Disasters result in considerable disrup on of normal life, enormous suﬀering,loss of lives and property. The global eﬀorts consider the recovery, rehabilita on and reconstruc onphase as an opportunity to build back be er integra ng disaster risk reduc on into development
measures and making communi es resilient to disasters. Build back be er is not limited to the built
environment and has a wide applicability encompassing the economy, societal systems, ins tu ons,
and environment. The Sendai Framework envisages that the stakeholders will be prepared for buildingback be er a er a disaster. Exis ng mechanisms may require strengthening in order to provide
eﬀec ve support and achieve be er implementa on. Disaster recovery tends to be very diﬃcult andlong-drawn out. The reconstruc on will vary depending on the actual disaster, loca on, pre -disastercondi ons, and the poten ali es that emerge at that point of me. The NDMP provides a generalized
framework for recovery since it is not possible to an cipate all the possible elements of building backbe er.

Capacity Development
Capacity development covers strengthening of ins tu ons, mechanisms, and capaci es of all
stakeholders at all levels. The plan recognizes the need for a strategic approach to capacity
development and the need for enthusias c par cipa on of various stakeholders to make it eﬀec ve.
The plan addresses the challenge of pu ng in place appropriate ins tu onal framework,
management systems and alloca on of resources for eﬃcient preven on and handling of disasters.
The planning needs of capacity development are described for all phases of disaster management.

xxix

NATIONAL DISASTER MANAGEMENT AUTHORITY

Financial Arrangements
The ﬁnancing of disaster relief has been an important aspect of federal ﬁsca l rela ons. According to
NPDM 2009, the primary responsibility of disaster management lies with the State Governments. Thismeans, the primary responsibility for undertaking rescue, relief, and rehabilita on measures during adisaster lies with the State Governments. The Union Government supplements their eﬀorts throughlogis c and ﬁnancial support. The DM Act 2005 provides the legal framework for disaster management
and all related ma ers, including the ﬁnancial aspects. The ﬁnancing of the en re disastermanagement cycle will be as per norms set by the Government of India. The disaster risk reduc on
will be achieved by mainstreaming the requirements into the developmental plans.
Changes Introduced—Highlights
This NDMP, the revised version, comprises of fourteen chapters compared to ten in the previous plandue to addi on of chapters on three cross-cu ng themes rela ng to DRR: a) coherence and mutual
reinforcement of three post-2015 global frameworks b) social inclusion and c) mainstreaming. New
sec ons have been added rela ng to the following hazards: a) Thunderstorm, Lightning, Squall, Dust
Storm, and Strong Wind b) Cloudburst and Hailstorms c) Glacial Lake Outburst Flood (GLOF) d) Heatwave e) Biological and Public Health Emergencies (BPHE) and f) Forest Fire Hazard. The following
challenges of DRR have been discussed in some detail: a) Climate Change Risks b) Livestock c)
Environment and Wildlife d) Cultural heritage sites, their precincts and museums and e) Global
Catastrophic Risks. Another major feature added is the inclusion of me frames and providing an
indica ve grouping of various elements of the plan into the me frames. Based on feedbacks andintensive reviews, more details have been added to diﬀerent sec ons.

Structure of the Plan
The NDMP has fourteen chapters: 1) Preliminaries, 2) Hazard Risks and Challenges, 3) Coherence andMutual Reinforcement of Three Post-2015 Global Frameworks for DRR, 4) Social Inclusion in DRR, 5)
Mainstreaming DRR, 6) Building Disaster Resilience – Responsibility Framework: Part-A, Prelude, 7)
Building Disaster Resilience – Responsibility Framework, Part-B, 8) Preparedness and Response, 9)Recovery and Building Back Be er, 10) Capacity Development – An Overview, 11) Financial
Arrangements, 12) Strengthening Disaster Risk Governance, 13) Interna onal Coopera on, and 14)
Maintaining, Monitoring and Upda ng the Plan.

xxx

NATIONAL DISASTER MANAGEMENT PLAN

1

Preliminaries

1.1 Ra onale
The revised terminology of the United Na ons Oﬃce for Disaster Risk Reduc on (UNISDR1) deﬁnes‘disaster’ as:"A serious disrup on of the func oning of a community or a society at any scale due tohazardous events interac ng with condi ons of exposure, vulnerability and capacity, leading to
one or more of the following: human, material, economic and environmental losses andimpacts." (UNISDR 2016)
The eﬀect of the disaster can be immediate and localized but is o en wides pread, o en persis ng forlong a er the event. The eﬀect may challenge or overwhelm the capacity of a community or society
to cope using the resources immediately, and therefore may require assistance from external sources,
which could include neighbouring jurisdic ons, or those at the na onal or interna onal levels. UNISDR
considers disaster to be a result of the combina on of many factors such as the exposure to hazards,
the condi ons of vulnerability that are present, and insuﬃcient capacity o r measures to reduce orcope with the poten al nega ve consequences. Disaster impacts may include loss of life, injuries,
disease and other nega ve eﬀects on human physical, mental and social well -being, together withdamage to property, destruc on of assets, loss of services, social and economic disrup on andenvironmental degrada on.
The DM Act 2005 uses the following deﬁni on for disaster:"Disaster" means a catastrophe, mishap, calamity or grave occurrence in any area, arising fromnatural or manmade causes, or by accident or negligence which results in substan al loss of lifeor human suﬀering or damage to, and destruc on of, property, or damage to, or degrada onof, environment, and is of such a nature or magnitude as to be beyond the coping capacity of
the community of the aﬀected area."
The NDMP provides a framework and direc on to the government agencies for all phases of disastermanagement cycle (Fig. 1-1). The NDMP is a “dynamic document” in the sense that it will be
periodically improved keeping up with the global best prac ces and knowledge base in disastermanagement. It is in accordance with the provisions of the Disaster Management (DM) Act 2005, theguidance given in the Na onal Policy on Disaster Management (NPDM) 2009, and the establishedna onal prac ces. Relevant agencies – central or state – will carry out disaster management ac vi es
in diﬀerent phases in the disaster-aﬀected areas depending on the type and scale of disaster.
Within each state, the state government is primarily responsible for di saster. However, in situa ons
where the resources of the state are inadequate to cope eﬀec vely with the situa on, the State
Government can seek assistance from the Central Government. In addi on, there may be situa ons
in which the Central Government will have direct responsibili es in certain aspects of disastermanagement. While the NDMP pertains to both these exigencies, in most cases the role of central
agencies will be to support the respec ve state governments. Barring excep onal circumstanc es, the1

The United Na ons Oﬃce for Disaster Risk Reduc on oﬃcially changed its acronym to UNDRR from UNISDR
on 1 May 2019. However, the former acronym UNISDR is s ll used in references published underInterna onal Strategy for Disaster Risk Reduc on.
1

NATIONAL DISASTER MANAGEMENT AUTHORITY

state governments will deploy the ﬁrst responders and carry out other ac vi es pertaining to disastermanagement.

PreDisaster

Disaster

Response

Preparedness

Mitigation:
Prevention &Risk
Reduction

PostDisaster

RecoveryFigure 1-1: Disaster Management Cycle
The NDMP provides a framework covering all aspects of the disaster management cycle. It covers
disaster risk reduc on, mi ga on, preparedness, response, recovery, and building back be er. It
recognises that, eﬀec ve disaster management necessitates a comprehensive frameworkencompassing mul ple hazards. The NDMP incorporates an integrated approach that ensures theinvolvement of government agencies, numerous other relevant organisa ons, private sector
par cipants, and local communities.
The NDMP recognizes the need to minimize, if not eliminate, any ambiguity in the responsibility
framework. It, therefore, speciﬁes who is responsible for what at diﬀerent stages of managing
disasters. The NDMP is implemented in a scalable manner over all phases of disaster management: a)mi ga on (preven on and risk reduc on), b) preparedness, c) response and d) recovery (immediate
restora on to long-term building back be er).
The NDMP provides a framework with role clarity for rapid mobiliza on of resources and eﬀec ve
disaster management by the Central and State Governments and other concerned stakeholders inIndia. While it focuses primarily on the needs of the government agencies, it envisages all those
involved in disaster management including communities and non-government agencies as poten al
users. The NDMP provides a well-deﬁned framework for disaster management covering scope of workand roles of relevant agencies along with their responsibili es and accountability necessary to ensureeﬀec ve mi ga on, develop preparedness, and mobilize adequate response. The measures includedin the NDMP, which is a dynamic document, are indica ve and not exhaus ve. Based on global
prac ces and na onal experiences, the plan will incorporate changes durin g the periodic reviews andupdates.
According to the revised UNISDR terminology, Disaster Management (DM) is “the organiza on,planning and applica on of measures preparing for, responding to and recovering from disasters” and2

NATIONAL DISASTER MANAGEMENT PLAN

Disaster Risk Management (DRM) is “the applica on of disaster risk reduc on policies and strategies
to prevent new disaster risk, reduce exis ng disaster risk and manage residual risk, contribu ng to thestrengthening of resilience and reduc on of disaster losses” (UNISDR 2016a). The sense in which DM
Act 2005 uses the term disaster management, covers nearly DM, DRR and DRM without maintaining
a strict dis nc on between them.
The term Disaster Management as used in the NPDM 2009 and the DM Act 2005 document iscomprehensive covering all aspects – disaster risk reduc on, disaster risk management, disaster
preparedness, disaster response, and post-disaster recovery. This document uses the term with thesame meaning as deﬁned in the DM Act 2005:"A con nuous and integrated process of planning, organising, coordina ng and implemen ng
measures which are necessary or expedient" for the following: 1) Preven on of danger orthreat of any disaster, 2) Mi ga on or reduc on of risk of any disaster or its severity orconsequences, 3) Capacity-building, 4) Preparedness to deal with any disaster, 5) Prompt
response to any threatening disaster situa on or disaster, 6) Assessing the severity or
magnitude of eﬀects of any disaster 7) Evacua on, rescue and relief, and 8) Rehabilita on andreconstruc on.
Apart from sudden large-scale disasters (intensive risks), the accumula on of impacts from small
frequent events (extensive risks) and slowly developing health, safety, security and environmental
crises have a quiet but massive eﬀect on society and on sustainable development. Disaster risk is thepoten al loss of life, injury, or destroyed or damaged assets which could occur to a system, society or
a community in a speciﬁc period, determined probabilis cally as a func on of hazard, exposure,vulnerability and capacity. According to UNISDR (2016), the deﬁni on of disaster risk reﬂects theconcept of hazardous events and disasters as the outcome of con nuously present condi ons of risk.
Disaster risk comprises diﬀerent types of poten al losses which are o en diﬃcult to quan fy.
Acceptable risk, or tolerable risk, is the extent to which a disaster risk is deemed acceptable or
tolerable depending on exis ng social, economic, poli cal, cultural, technical and environmental
condi ons. In engineering terms, acceptable risk is used to assess and deﬁne the structural and nonstructural measures that are needed to reduce possible harm to people, property, services andsystems to a chosen tolerated level, according to codes or “accepted prac ce” wh ich are based on
known probabili es of hazards and other factors.
Residual Risk is the disaster risk that remains even when eﬀec ve disaster risk reduc on measures arein place, and for which emergency response and recovery capaci es must be maintain ed. The
presence of residual risk implies a con nuing need to develop and support eﬀec ve capaci es for
emergency services, preparedness, response and recovery, together with socioeconomic policies suchas safety nets and risk transfer mechanisms, as part of a holis c approach.

1.2 Paradigm Shi
The DM Act 2005 and the NPDM 2009 marks the ins tu onaliza on of paradigm shi in disastermanagement in India, from a relief-centric approach to one of proac ve preven on, mi ga on andpreparedness. The NPDM notes that while it is not possible to avoid natural hazards, adequate
mi ga on and disaster risk reduc on measures can prevent the hazards becoming major disasters.
Disaster risk arises when hazards interact with physical, social, economic and en vironmental
vulnerabili es. The NPDM suggests a mul -pronged approach for disaster risk reduc on andmi ga on consis ng of the following:
3

NATIONAL DISASTER MANAGEMENT AUTHORITY

•
•
•
•
•

Integra ng risk reduc on measures into all development projects
Ini a ng mi ga on projects in iden ﬁed high priority areas through joint eﬀorts of theCentral and State Governments
Encouraging and assis ng State level mi ga on projects
Paying a en on to indigenous knowledge on disaster and coping mechanisms
Giving due weightage to the protec on of heritage structures

In the terminology adopted by the UNISDR, the concept and prac ce of reducing disaster risks involve
systema c eﬀorts to analyse and manage the causal factors of disasters, including through reduced
exposure to hazards, lessened vulnerability of people and property, wise management of land and theenvironment, and improved preparedness for adverse events. While both the terms “Disaster
Reduc on” and “Disaster Risk Reduc on” are widely used, the la er provides a be er recogni on of
the ongoing nature of disaster risks and the ongoing poten al to reduce these risks. Mi ga on consistsof various measures required for lessening or limi ng the adverse impacts of hazards and related
disasters.

1.3 Main Pillars of the NDMPThe NDMP, in a sense, can be said to have ﬁve main pillars:
I.
II.

III.
IV.
V.

Conforming to the na onal legal mandates – the DM Act 2005 and the NPDM 2009
Par cipa ng proac vely to realise the global goals as per agreements to which India is asignatory – Sendai Framework for Disaster Risk Reduc on (SFDRR), Sustainable Development
Goals (SDGs) and Paris Agreement on Climate Change – consistent with the interna onal
consensus for achieving mutual reinforcement and coherence of these frameworks
Prime Minister’s Ten Point Agenda for DRR ar cula ng contemporary na onal priori es
Social inclusion as a ubiquitous and cross-cu ng principle
Mainstreaming DRR as an integral feature

Across these ﬁve ‘pillars’, there are both overlapping and non-overlapping themes as well as some
nuanced diﬀerences in emphasis. The NDMP has a empted a grand synthesis of all this within aconsiderably ambi ous and futuris c plan while revising the earlier plan which, incidentally, was theﬁrst na onal plan globally explicitly aligned with the Sendai Framework. The period envisaged as‘Long-Term’ in this plan is co-terminus with year 2030, the ending year of the major post-2015 global
frameworks.

1.4 Legal Mandate
Sec on 11 of the DM Act 2005 mandates that there shall be a Na onal Disaster Management Plan(NDMP) for the whole of India. The NDMP complies with the Na onal Policy on Disaster Management(NPDM) of 2009 and conforms to the provisions of the DM Act making it mandatory for the various
central ministries and departments to have adequate DM plans. While the NDMP will pertain to thedisaster management for the whole of the country, the hazard-speciﬁc nodal ministries anddepartments no ﬁed by the Government of India will prepare detailed DM plans speciﬁc to thedisaster assigned. As per Sec on 37 of the DM Act, every ministry and department of the Governmentof India, be it hazard-speciﬁc nodal ministries or not, shall prepare comprehensive DM plans detailing

4

NATIONAL DISASTER MANAGEMENT PLAN

how each of them will contribute to the na onal eﬀorts in the domains of disaster preven on,
preparedness, response, and recovery.
As per the mandate of the DM Act, the NDMP assigns speciﬁc and general responsibili es to allministries and departments for disaster management. The DM Act enjoins the NDMP to assign
necessary responsibili es to various ministries to support and implement the plan. Therefore, it isincumbent on all ministries to accept all the implicit and explicit responsibili es men oned in the
NDMP even if they are beyond what are explicitly men oned in the normal rules of business. Disastermanagement requires assump on of responsibili es beyond the normal func oning. The NDMP will
be complemented by separate con ngency plans, SOPs, manuals, and guidelines at all levels of themul - ered governance system.

1.5 Three Post-2015 Global Frameworks—Disasters,
Sustainable Development and Climate Change: Mutual
Reinforcement and Coherence
The adop on in 2015 of three landmark global agreements - the Sendai Framework for Disaster Risk
Reduc on (UNISDR 2015a), Sustainable Development Goals (UN 2015) and COP21 Paris Agreement
on Climate Change (UNFCC 2015) has opened the signiﬁcant opportunity to build coherence across
DRR, sustainable development and response to climate change. The adop on of SDGs – ‘Transforming
Our World: The 2030 Agenda for Sustainable Development’ is a global transforma ve plan of ac onthat has poverty eradica on as an overarching aim. It has, at its core, the integra on of the economic,
social and environmental dimensions of sustainable development. The Paris Agreement on global
climate change points to the importance of aver ng, minimizing, and addressing loss and damage
associated with the adverse eﬀects of climate change, including extreme weather events and slow
onset events, and the role of sustainable development in reducing the risk of loss and damage.
DRR and resilience are recurring common theme in the three global agreements. All three agreements
share a common aim of making development sustainable. The most signiﬁcant shi recognised in the
Sendai Framework is a strong emphasis on disaster risk management in contrast to disastermanagement. These three agreements recognize the desired outcomes in DRR as a product ofcomplex and interconnected social and economic processes, which overlap across the agendas of thethree agreements. Intrinsic to sustainable development is DRR and the building of resil ience todisasters. Further, eﬀec ve disaster risk management contributes to sustainable development.
Strong commitment to ambi ous goals and accelerated implementa on of these interna onal
agreements are global priority. Given the complementari es between the post-2015 agendas,
synchronising and mutually reinforcing the ac ons in the three domains helps in be er outcomes .
Eﬀorts must be made to ensure that each of them do not build in “policy risks” or, contradictory
policies, that generate more - rather than less - risk in development. Promo ng coherence and mutual
reinforcement in all three agreements requires poli cal recogni on, monitoring, repor ng andsuppor ng partnerships at various levels. Recognising the emerging global consensus, the NDMP has
a empted to address the challenges of providing coherence and mutual reinforcing of the na onal
ini a ves corresponding to the three Post-2015 global frameworks embracing the domains of DRR,
sustainable development and the responses to meet challenges of global climate change.

5

NATIONAL DISASTER MANAGEMENT AUTHORITY

1.6 Prime Minister’s Ten-Point Agenda for Disaster Risk
Reduc on
The Prime Minister, Shri Narendra Modi, enunci ated a Ten -Point Agenda in his inaugural speech at the
Asian Ministerial Conference on Disaster Risk Reduc on 2016, held in New Delhi during November
2016 (AMCDRR), which has also been incorporated in the NDMP. The ten key elements consist of thefollowing:
1. All development sectors must imbibe the principles of disaster risk management
2. Risk coverage must include all, star ng from poor households to SMEs to mul -na onal
corpora ons to na on states
3. Women’s leadership and greater involvement should be central to disaster risk management
4. Invest in risk mapping globally to improve global understanding of Nature and disaster risks
5. Leverage technology to enhance the eﬃciency of disaster risk management eﬀorts
6. Develop a network of universi es to work on disaster-related issues
7. U lise the opportuni es provided by social media and mobile technologies for disaster risk
reduc on
8. Build on local capacity and ini a ve to enhance disaster risk reduc on
9. Make use of every opportunity to learn from disasters and, to achieve that, there must be
studies on the lessons a er every disaster10. Bring about greater cohesion in interna onal response to disasters
Given below is a descrip on of the Ten Point of Agenda for DRR:First, all development sectors must imbibe the principles of disaster risk management. This will ensurethat all development projects - airports, roads, canals, hospitals, schools, bridges – are built toappropriate standards and contribute to the resilience of communi es they seek to serve. Over the
next couple of decades, most of the new infrastructure in the world will come up in Asia. This points
to the need for ensuring that all the infrastructure development conforms to the best available
standards of disaster safety. Such an approach is a smart strategy, which will pay oﬀ in the long term.
It is necessary that all the public investments must incorporate disaster risk considera ons. In India,
the ‘housing for all’ programme and ‘smart ci es’ ini a ve s represent such opportuni es. India will
work with other partner countries and stakeholders to build a coali on or mechanism for promo ng
disaster resilient infrastructure in the region. This will help generate new knowledge for hazard risk
assessment, disaster resilient technologies and mechanisms for integra ng risk reduc on in
infrastructure ﬁnancing.
Second, it is necessary to work towards risk coverage for all – star ng from poor households, it mustcover small and medium enterprises as well as large mul -na onal corpora ons. Currently, in mostcountries of the region, penetra on of insurance is limited only to a narrow sec on, mostly in the
middle and upper-middle income groups. It is necessary to think big and innova vely to widen the risk
insurance cover. States have an important role in not just regula ng but also encouraging coveragefor those who need it the most. Some bold steps have been taken to ensure ﬁnancial inclusion andrisk insurance for the poorest. The Jan Dhan Yojana has brought millions of people into the banking
system. The Suraksha Bima Yojana provides risk insurance to millions who need it the most. The newly
launched Fasal Bima Yojana (crop insurance) will provide risk cover to millions of farmers. These are
the basic building blocks of resilience at the household level.

6

NATIONAL DISASTER MANAGEMENT PLAN

Third, it is necessary to encourage greater involvement and leadership of women in disaster risk
management. Women are dispropor onately aﬀected by disasters. They also have unique strengths
and insights. India must train a large number of women volunteers to support special needs of womenaﬀected by disasters. There is also need for women engineers, masons and building ar sans topar cipate in post-disaster reconstruc on and promote women self-help groups which can assist in
livelihood recovery.
Fourth, it is necessary to invest in mapping risks globally. For mapping risks related to hazards such as
earthquakes, there are widely accepted standards and parameters. Based on these, India has mapped
seismic zones, with ﬁve as highest seismic risk and two as low risk. For disaster risk related to otherhazards such as chemical hazards, forest ﬁres, cyclones, diﬀerent types of ﬂoods, India needs to adopt
globally accepted standards and categories. This will help India to ensure that there is a sharedunderstanding of the nature and severity of disaster risks and compare with that in other parts of theworld.
Fi h, eﬀorts must be made to leverage technology to enhance the eﬃciency of our disaster risk
management eﬀorts. An e-pla orm that brings together organiza ons and individuals and helps themmap and exchange exper se, technology and resources would go a long way in maximizing thecollec ve impact.
Sixth, it will be helpful to develop a network of universi es to work on disaster-related aspects since
universi es have social responsibili es too. Over the ﬁrst ﬁve years of the Sendai Framework, an eﬀort
can be made to develop a global network of universi es working together on problems of disaster risk
management. As part of this network, diﬀerent universi es could specialize in mul -disciplinary
research on disaster issues most relevant to them. Universi es located in coastal areas could specialize
in managing risks from coastal hazards, and the ones located in the hill ci es could focus on mountainhazards.
Seventh, u lize the opportuni es provided by social media and mobile technologies. Social media istransforming disaster response. It is helping response agencies in quickly organizing themselves andenabling ci zens to connect more easily with authori es. In disaster a er disaster, aﬀected people
are using social media to help each other. Those responsible for disaster management must recognize
the poten al of social media and develop applica ons relevant to various aspects of disaster risk
management.
Eighth, disaster management must build on local capabili es and ini a ves. The task of disaster risk
management, par cularly in rapidly growing economies, is so huge that formal ins tu ons of the state
can at best be instrumental in crea ng the enabling condi ons. Speciﬁc ac ons have to be designed
and implemented locally. Over the last two decades, most community-based eﬀorts have been
conﬁned to disaster preparedness and con ngency planning for the short term. It is necessary to
expand the scope of community-based eﬀorts and support communi es to iden fy local risk reduc on
measures and implement them. Such eﬀorts reduce risk and create opportuni es for local
development and sustainable livelihoods. Localiza on of disaster risk reduc on will also ensure that
good use is made of the tradi onal best prac ces and indigenous knowledge. Response agencies needto interact with their communi es and make them familiar with the essen al drill of disaster response.
For example, if a local ﬁre service visits one school in its area every week, it would sensi ze thousandsof children over a period of one year.
Ninth, ensure that the opportunity to learn from a disaster is not wasted. A er every disaster there
are studies and reports on lessons learnt that are rarely applied. O en the same mistakes arerepeated. It is necessary to have a vibrant and visual system of learning. The United Na ons could

7

NATIONAL DISASTER MANAGEMENT AUTHORITY

start an interna onal compe on of documentary ﬁlms that record disaster events, their scale, andrelief, rehabilita on, reconstruc on and recovery a erwards. Post -disaster recovery is an opportunity
to not just ‘build back be er’ in terms of physical infrastructure, but also in terms of improved
ins tu onal systems for managing risk. For this, it is necessary to put in place systems that can quickly
provide risk assessments. India must work with partner countries and mul lateral development
agencies to establish a facility for technical support to post-disaster reconstruc on of houses.
The tenth and last, it is necessary to bring about greater cohesion in interna onal response todisasters. In the a ermath of a disaster, disaster responders pour in from all over the world. This
collec ve strength and solidarity could be enhanced further if the ac vi es are organised under acommon umbrella. The United Na ons could think of a common logo and branding under which all
those who are helping with relief, rehabilita on and reconstruc on operate.

1.7 Social Inclusion
Hazards do not discriminate based on human social condi ons, but human responses to disasters
o en do. Exis ng socio-economic condi ons mean that disasters can lead to diﬀerent outcomes for
demographically similar communi es, where the most vulnerable groups also suﬀer
dispropor onately on mul ple counts compared to others. The preamble of NPDM 2009 notes thatthe economically weaker and socially marginalized sec ons, women, Scheduled Castes, Scheduled
Tribes and minori es tend to suﬀer more during disasters. The DM Act 2005 speciﬁcally forbids all
forms of discrimina on – be it based on sex, caste, community, descent or religion – in any aspect of
DM. Social inclusion is about equality of rights and opportuni es, dignity of the individual,
acknowledging diversity, and contribu ng to resilience for everyone, not leaving aside members of acommunity based on age, gender, disability or other.

1.8 Mainstreaming DRR
A disaster can set back signiﬁcantly the development of an aﬀected region and even beyond,depending on its scale, reversing decades or more of accumulated gains. Development without
recognising disaster probabili es and incorporating adequate risk reduc on could, in eﬀect, worsen
exis ng risks and carries with it the likelihood of introducing new risks, aggrava ng the nega ve
impact of poten al disasters. Mainstreaming of DRR is the extensive and sound integra on of DRR
into all developmental ini a ves to enhance disaster resilience, reduce losses and hasten the progress
towards development goals. Mainstreaming DRR is an approach in which both development and DRR
incorporated concurrently in a seamless manner into all the aspects of development – policies,
planning and implementa on. Since climate change impact act as risk mul pliers worsening
uncertain es associated with almost every hydro-meteorological hazard, sound approaches to DRR
mainstreaming naturally integrates the how climate change impacts alter the risk scenarios. The
unfortunate fact that DRR mainstreaming has remained somewhat improperly understood or vaguelyinterpreted theme by both decision-makers and prac oners is weakness that needs to be corrected.
Undoubtedly, going forward, DRR mainstreaming will assume a more central role in both development
and DM. Hence, it is one of the main pillars of the NDMP. In many ways, the ac ons under SDGs andthe responses to climate change are integral to development ini a ves and building disaster resilience
is common theme in all these. DRR mainstreaming focuses a en on on building disaster resilience,
not as a sub-component of a disaster-speciﬁc plan, but an approach that must ghtly be integrated
into all developmental plans.

8

NATIONAL DISASTER MANAGEMENT PLAN

1.9 Vision
The vision incorporates the goals reﬂected in na onal policies, laws and the PM’s Ten-Point Agenda
for DRR as well as interna onal best prac ces, frameworks and discourses:
Make India disaster resilient across all sectors, achieve substan al and inclusive disaster risk
reduc on by building local capaci es star ng with the poor and decreasing signiﬁcantly theloss of lives, livelihoods, and assets in diﬀerent forms including economic, physical, social,
cultural, and environmental while enhancing the ability to cope with disasters at all levels.

1.10 Scope
As per the DM Act 2005, the NDMP shall include:a. Measures to be taken for preven on of disasters or the mi ga on of their eﬀects
b. Measures to be taken for the integra on of mi ga on measures in the development plansc. Measures to be taken for preparedness and capacity building to eﬀec vely respond to any
threatening disaster situa ons or disasterd. Roles and responsibili es of diﬀerent Ministries or Departments of the Government of India
in respect of measures of the three aspects men oned above
The NDMP provides an over-arching planning framework for DM for the whole country, which must
be reviewed and updated periodically. Central Government shall make appropriate provisions forﬁnancing the plan implementa on. Disaster management, covering preven on and mi ga on,
preparedness, response, and recovery, necessarily involves mul ple agencies and it is even more soin a large country like India. Hence, the inter-agency coordina on and collabora on among
stakeholders are of utmost importance for the successful implementa on of the NDMP and inensuring eﬀec ve risk reduc on, response and recovery.
The NDMP provides the framework for mobiliza on and coordina on of the central ministries,
departments and other agencies among themselves and the devolu on of responsibili es between
central and state government in all spheres of disaste r preven on, preparedness, response andrecovery within India. The deployment of armed forces 2 and central agencies during disaster within
India will be subject to norms adopted by the Central government and the relevant protocols agreed
upon between Central and State Governments. Any State may seek the assistance and support of theCentre and other States at any me during a disaster. Responding to incident speciﬁc emergencies is
the responsibility of designated agencies.
The plan is based on detailed hazard-speciﬁc guidelines (Annexure-I) prepared by the NDMA. Unlessotherwise speciﬁed, the guidelines issued by NDMA serve as the primary reference for this document.
The GOI has no ﬁed certain central ministries and departments for hazard-speciﬁc nodal
responsibili es for overall coordina on of disaster management for diﬀerent hazards. In addi on, GOI
has no ﬁed disaster-wise certain ministries for coordina ng immediate post-disaster response. Theseno ﬁed ministries/ departments must prepare detailed DM plans to carry out the roles assigned to2

Armed Forces includes the Army, Air Force, and Navy .
9

NATIONAL DISASTER MANAGEMENT AUTHORITY

them. At the same me, each central ministry, department, state, and district must formulate
respec ve DM plans specifying how each en ty can contribute to eﬀec vely manage disasters.

1.11 Objec ves
Along with the mandate given in the DM Act 2005 and the NPDM 2009, the na onal plan has
incorporated the na onal commitments in the domain of DRR associated with the three major post2015 global frameworks and the PM's Ten Point Agenda. Accordingly, the broad objec ves of the NDMP
are:
1.
2.
3.
4.
5.
6.
7.
8.

9.
10.
11.
12.
13.
14.
15.
16.
17.
18.
19.
20.
21.
22.
23.
24.
25.

10

Improve the understanding of disaster risk, hazards, and vulnerabili es
Strengthen disaster risk governance at all levels from local to centre
Invest in disaster risk reduc on for resilience through structural, non-structural and ﬁnancial
measures, as well as comprehensive capacity development
Enhance disaster preparedness for eﬀec ve response
Promote "Build Back Be er" in recovery, rehabilita on and reconstruc on
Prevent disasters and achieve substan al reduc on of disaster risk and losses in lives,
livelihoods, health, and assets (economic, physical, social, cultural and environmental)
Increase resilience, prevent the emergence of new disaster risks, reduce the exis ng risks
and manage the residual risks
Promote the implementa on of integrated and inclusive economic, structural, legal, social,health, cultural, educa onal, environmental, technological, poli cal and ins tu onal
measures to prevent and reduce hazard exposure and vulnerabili es to disaster
Empower both local authori es and communi es as partners to reduce and manage
disaster risks
Strengthen scien ﬁc and technical capabili es in all aspects of disaster management
Capacity development at all levels to eﬀec vely respond to mul ple hazards and forcommunity-based disaster management
Provide clarity on roles and responsibili es of various Ministries and Departments involved
in diﬀerent aspects of disaster management
Promote the culture of disaster risk preven on and mi ga on at all levels
Facilitate the mainstreaming of disaster management concerns into the developmental
planning and processes
Ensuring DRR is socially inclusive, gender sensi ve and empowering
Build and strengthen the resilience of poor communi es to prevent disasters aggrava ng
poverty and to protect livelihoods
Enhanced mainstreaming of disaster risk reduc on and climate adapta on strategies within
the agriculture sector including sustainable farming
Special focus on disaster risk reduc on measures for agriculture and livestock
Promo ng resilient health systems to develop the capaci es and resilience of communi es
to cope and recover from disaster impacts
Enhance the resilience of health systems by integra ng DRR into all levels of health care
Promote disaster-resilient schools, colleges and other educa onal facili es
Promote women's leadership and ac ve par cipa on in disaster risk reduc on
Strengthen eﬀorts to mainstream DRR into water management and reduce the likely
impacts of water-related hazards
Strengthening and promo ng the resilience of new and exis ng cri cal infrastructure
Integra on of disaster risk reduc on considera ons and measures into ﬁnancial and ﬁscal
instruments

NATIONAL DISASTER MANAGEMENT PLAN

26. Mainstreaming DRR into development and implementa on of all projects and schemes(rural and urban)
27. Strengthen disaster risk modelling, assessment, mapping, monitoring and mul -hazard
early warning systems
28. Promote comprehensive surveys on mul -hazard disaster risks and the development ofregional disaster risk assessments and maps, including climate change scenarios
29. Implementa on of ecosystem-based approaches regarding shared resources, such as withinriver basins, mountainous regions and coastlines
30. Eﬀec ve use of science, technology and tradi onal knowledge in all aspects of DRR

1.12 Time Frames – Short, Medium and Long-Term
The implementa on of the measures in the plan must be completed within the short (T1), medium(T2), and long-term (T3), ending by 2022, 2027, 2030 respec vely (Fig. 1-2). The year 2030 is the endof me frame for all the three post-2015 interna onal agreements – Sendai Framework, SDG and the
COP21. By being a signatory to these agreements, India has also adopted these meframes. For
consistency, the comple on of all measures envisaged in the NDMP is also 2030. The reference to‘Short’, ‘Medium and ‘Long’ are to meframes required for comple on and do not signify any orderof priority. These are tenta ve and subject to changes depending on many factors par cularly
technology. Some of the ac ons envisaged could shi from a longer me frame to a shorter one.
However, all out eﬀorts are needed to ensure that those under smaller me frames are not taking
addi onal me for comple on.

Time frames envisaged in the NDMP
Short-Term (T1)

T1 (2022)

Medium-Term (T2)

T1/T2

T2 (2027)

T1/T2/T3

T2/T3

Long-Term (T3)

T3 (2030)

Figure 1-2: Time Frames—Short, Medium and Long Term
While some of the suggested measures in all categories – short, medium, and long-term – are alreadyunder implementa on or in need of upgrading, many need to be ini ated. The meframes short,medium and long do not mean that the three are necessarily sequen al in all cases. In fact, in manycases, they may be overlapping, star ng at the same me while in some cases, the work on themedium and long-term targets may be dependent on the comple on of the previous phase.
Nevertheless, the medium and long-term categories do not imply a lower priority but are ac ons that
require me long period for comple on provided they are started as early as possible.
There is considerable varia on in the implementa on status of the proposed measures acrossministries, departments, states, and UTs. Each central Ministry, Department, and the State
Government must appropriately categorize the items in their DM Plans according to the me frames
for implementa on while preparing their plan or at the me of revising e xis ng plans.
In the case of recovery, there are three recovery periods a er a disaster: a) Early – within eighteenmonths, b) Medium – within ﬁve years and c) Long-term – within ﬁve to ten years. These depend on
the speciﬁc disaster and are relevant only with reference to the types of recovery programmes. Hence,
the NDMP discusses them only in general terms without melines.

11

NATIONAL DISASTER MANAGEMENT AUTHORITY

1.13 Types of Disasters
Primarily disasters are triggered by natural hazards or human-induced or result from a combina on of
both. The human-induced factors can greatly aggravate the adverse impacts of a natural disaster. Even
at a larger scale, globally, the UN Inter-Governmental Panel on Climate Change (IPCC) has shown thathuman-induced climate change has signiﬁcantly increased both the frequency and intensity of
extreme weather events. While heavy rains, cyclones, or earthquakes are all natural, the impacts may,
and are usually, worsened by many factors related to human ac vity. The extensive industrializa on
and urbaniza on increase both the probability of human-induced disasters, and the extent ofpoten al damage to life and property from both natural and human-induced disasters. The humansociety is also vulnerable to Chemical, Biological, Radiological, and Nuclear (CBRN) threats and events
that might escalate to emergencies/ disasters .

1.13.1Natural Hazards

The widely accepted classiﬁca on system used by the Disaster Informa on Management System of
DesInventar3 classiﬁes disasters arising from natural hazards into ﬁve major categories and is used
globally for the Sendai targets monitoring:
1)

2)
3)
4)
5)

Geophysical: Geological process or phenomenon that may cause loss of life, injury or other
health impacts, property damage, loss of livelihoods and services, social and economic
disrup on, or environmental damage. Hydro-meteorological factors are important
contributors to some of these processes.
Hydrological: Events caused by devia ons in the normal water cycle and/or overﬂow ofbodies of water caused by wind set-up
Meteorological: Events caused by short-lived/small to meso-scale atmospheric processes(in the spectrum from minutes to days)
Climatological: Events caused by long-lived meso- to macro-scale processes (in the
spectrum from intra-seasonal to mul -decadal climate variability)
Biological: Process or phenomenon of organic origin or conveyed by biological vectors,
including exposure to pathogenic micro-organisms, toxins and bioac ve substances that
may cause loss of life, injury, illness or other health impacts, property damage, loss of
livelihoods and services, social and economic disrup on, or environmental damage.

A brief descrip on of these ﬁve major categories of the disasters arising from natural factors with the
sub-categories is given in Table 1-1. The below classiﬁca on is not a water ght one. In real life
situa ons, many disasters are a combina on of diﬀerent types of disasters. In addi on, secondary
disasters may occur a er a disaster has occurred.

Table 1-1: Categories of Natural Hazards
Family1 Geophysical3

12Main Event
Earthquake/ Massmovement of earthmaterials

Short Descrip on/ Secondary Disaster• Landslide following earthquake;• Urban ﬁres triggered by earthquakes;• Liquefac on - the transforma on of (par ally)
water-saturated soil from a solid state to a liquidstate caused by an earthquakeh p://www.desinventar.net/deﬁni ons.html (accessed Sep 20, 2019)

NATIONAL DISASTER MANAGEMENT PLAN

FamilyMain Event

Volcano2 Hydrological

Short Descrip on/ Secondary Disaster• Mass movement of earth materials, usually downslopes• Surface displacement of earthen materials due toground shaking triggered by earthquakes• Surface displacement of earthen materials due toground shaking triggered by volcanic erup ons• A type of geological event near an opening/ventin the Earth’s surface including volcanic erup onsof lava, ash, hot vapour, gas, and pyroclas cmaterial.
• Ash fall; Lahar - Hot or cold mixture of earthenmaterial ﬂowing on the slope of a volcano either
during or between volcanic erup ons;
• Lava Flow
• Pyroclas c Flow - Extremely hot gases, ash, andother materials of more than 1,000 degrees
Celsius that rapidly ﬂow down the ﬂank of a
volcano (more than 700 km/h) during an erup on

TsunamiTsunamis are diﬃcult to categorize they are essen allyan oceanic process that is manifested as a coastal
water-related hazard. A series of waves (with longwavelengths when traveling across the deep ocean)that are generated by a displacement of massive
amounts of water through underwater earthquakes,
volcanic erup ons or landslides. Tsunami waves travel
at very high speed across the ocean but as they begin
to reach shallow water they slow down, and the wave
grows steeper.

• Flood• Landslides• Wave Ac on• Avalanche, a large mass of loosened earthmaterial, snow, or ice that slides, ﬂows or falls
rapidly down a mountainside under the force ofgravity• Coastal Erosion - The temporary or permanent
loss of sediments or landmass in coastal margins
due to the ac on of waves, winds, des, or
anthropogenic ac vi es• Coastal ﬂood - Higher-than-normal water levels
along the coast caused by dal changes orthunderstorms that result in ﬂooding, which canlast from days to weeks• Debris Flow, Mud Flow, Rock Fall - Types oflandslides that occur when heavy rain or rapid
snow/ice melt send large amounts of vegeta on,
mud, or rock downslope by gravita onal forces• Flash Flood Hydrological - Heavy or excessive
rainfall in a short period of time that produce
immediate runoﬀ, crea ng ﬂooding condi ons
within minutes or a few hours during or a er therainfall13

NATIONAL DISASTER MANAGEMENT AUTHORITY

FamilyMain Event

Hazard caused byshort-lived, micro- to
meso-scale extreme
weather and3 Meteorologicalatmosphericcondi ons that may
last for minutes todays
Unusual, extreme
weather condi ons
related to long-lived,
meso- to macroscale atmospheric
4 Climatologicalprocesses ranging
from intra-seasonal
to mul -decadal(long-term) climate
variability
5 Biological1.13.2

Exposure to germs
and toxic substances

Short Descrip on/ Secondary Disaster• Flood Hydrological - A general term for the
overﬂow of water from a stream channel onto
normally dry land in the ﬂoodplain (riverine
ﬂooding), higher-than normal levels along thecoast and in lakes or reservoirs (coastal ﬂooding)as well as ponding of water at or near the point
where the rain fell (ﬂash ﬂoods)• Wave Ac on: Wind-generated surface waves thatcan occur on the surface of any open body ofwater such as oceans, rivers and lakes, etc. The
size of the wave depends on the strength of thewind and the travelled distance (fetch).
• Cyclone, Storm Surge, Tornado, Convec ve
Storm, Extra-tropical Storm, Wind
• Cold Wave, Derecho• Extreme Temperature, Fog, Frost, Freeze, Hail,
Heat wave• Lightning, Heavy rain
• Sandstorm, Dust-storm• Snow, Ice, Winter Storm, Blizzard

•
•
•
•
•

Drought
Extreme hot/cold condi ons
Forest/Wildﬁre Fires
Glacial Lake Outburst Flood (GLOF)
Subsidence• Epidemics: viral, bacterial, parasi c, fungal, or
prion infec ons• Insect infesta ons• Animal stampedes

Human-Induced Disasters

The NPDM 2009 notes that rise in popula on, rapid urbaniza on and industrializa on, development
within high-risk zones, environmental degrada on, and climate change aggravates the vulnerabili es
to various kinds of disasters. Due to inadequate disaster preparedness, communi es, and animals areat increased risk from many kinds of human-induced hazards arising from accidents (industrial, road,air, rail, on river or sea, building collapse, ﬁres, mine ﬂooding, urban ﬂooding, oil spills, etc.). Hazards
due to CBRN threats and events rank very high among the causes that are human induced acts.
Terrorist ac vi es and secondary incidences arising from inten onal or non -inten onal ac vi es also
add to these risks and calls for adequate preparedness and planning.

14

NATIONAL DISASTER MANAGEMENT PLAN

1.14 Ins tu onal Framework
1.14.1

Na onal Level

National Disaster Management
Institutional Mechanism

Overall Coordination
Ministry of Home Affairs

Top Level Decision Making

CabinetCommittee
onSecurity
(CCS)

State
Governments/
UTs

National
CrisisManagement
Committee(NCMC)

DesignatedNodal Ministries(DisasterSpeciﬁc)National Disaster
Management
Authority(NDMA)

National
Executive
Committee(NEC)

Armed Forces&
Central Armed
Police Forces(CAPF)

National
Institute ofDisasterManagement(NIDM)

National
Disaster
Response
Force(NDRF)

Figure 1-3: Na onal-level disaster management - basic ins tu onal framework
Note: This represents merely the ins tu onal pathways for coordina on, decision -making and communica on
for disaster management and does not imply any chain of command.

The overall coordina on of disaster management vests with the Ministry of Home Aﬀairs (MHA). The
Cabinet Commi ee on Security (CCS) and the Na onal Crisis Management Commi ee (NCMC) are thekey commi ees involved in the top-level decision-making regarding disaster management. The NDMA
is the agency responsible for the approval of the NDMP and facilita ng its implementa on. Figure 1-3
provides a schema c view of the basic ins tu onal structure for DM at na onal level. The ﬁgure
represents merely the ins tu onal pathways for coordina on, decision-making and communica on
for disaster management and does not imply any chain of command.

15

NATIONAL DISASTER MANAGEMENT AUTHORITY

The DM Act does not have any provisions for no fying any disaster as a ‘na onal calamity’ or a‘na onal disaster’. In most cases, state governments will be carrying out disaster management withthe central government playing a suppor ng role. Generally, the central agencies will par cipate on
the request from the state government. Within each state, there is a separate ins tu onal frameworkfor disaster management at the state-level. The DM Act of 2005 provides for the se ng up of Disaster
Management Authori es (DMA) at na onal (NDMA), the state (SDMA) and the district (DDMA) levels.
The role, composi on and the role of the key decision-making bodies for disaster management at
na onal level are brieﬂy described in the Table 1 -2. The extent of involvement of central agencies will
depend on the type, scale, and administra ve spread of the disaster. If the situa on requires the direct
assistance from central government or the deployment of central agencies, the central government
will provide all necessary support.

Table 1-2: Key Na onal-Level Decision-Making Bodies for Disaster Management
Name

Cabinet1 Commi ee
on Security(CCS)

Composi on

Prime Minister, Ministerof Defence, Minister ofFinance, Minister ofHome
Aﬀairs,andMinister of External
Aﬀairs• Cabinet Secretary
Na onal(Chairperson)
Crisis• Secretaries of
2 Management
Ministries/
Commi eeDepartments and(NCMC)
agencies with speciﬁc
DM responsibili es• Prime Minister
Na onal(Chairperson)
Disaster• Members (not3 Management
exceeding nine,
Authority
nominated by the(NDMA)
Chairperson)

Na onalExecu ve
4
Commi ee(NEC)16

• Union Home Secretary(Chairperson)• Secretaries to the GOI
in the Ministries/
Departments of

Vital role
• Evalua on from a na onal security
perspec ve, if an incident has poten ally
security implica ons• Oversee all aspects of preparedness,mi ga on and management of Chemical,
Biological, Radiological and Nuclear (CBRN)
emergencies and of disasters with security
implica ons• Review risks of CBRN emergencies from me
to me, giving direc ons for measuresconsidered necessary for disaster preven on,
mi ga on, preparedness and eﬀec ve
response• Oversee the Command, Control andCoordina on of the disaster response• Give direc on to the Crisis Management
Group as deemed necessary• Give direc on for speciﬁc ac ons to face crisis
situa ons
• Lay down policies, plans and guidelines fordisaster management• Coordinate their enforcement andimplementa on throughout the country• Approve the NDMP and the DM plans of therespec ve Ministries and Departments ofGovernment of India• Lay down guidelines for disaster management
to be followed by the diﬀerent Central
Ministries, Departments and the State
Governments• To assist the NDMA in the discharge of its
func ons• Prepara on of the Na onal Plan
• Coordinate and monitor the implementa onof the Na onal Policy

NATIONAL DISASTER MANAGEMENT PLAN

Name

Composi on
Agriculture, Atomic
Energy, Defence,
Drinking Water andsanita on,
Environment, Forests
and Climate Change
Finance (Expenditure),
Health and Family
Welfare, Power, Rural
Development, Scienceand Technology, Space,
Telecommunica ons,
Urban Development,
Water Resources, River
Development andGanga Rejuvena on,
The Chief of theIntegrated Defense
Staﬀ of the Chiefs ofStaﬀ Commi ee, ex
oﬃcio as members.
• Secretaries in the
Ministry of External
Aﬀairs, Earth Sciences,
Human Resource
Development, Mines,
Shipping, Road
Transport and
Highways, Chairman,
Central Water
Commission and
Secretary, NDMA are
special invitees to themee ngs of the NEC.

Vital role
• Monitor the implementa on of the Na onal
Plan and the plans prepared by the Ministries
or Departments of the Government of India• Direct any department or agency of the Govt.
to make available to the NDMA or SDMAs
such men, material or resources as areavailable with it for emergency response,
rescue and relief• Ensure compliance of the direc ons issued by
the Central Government• Coordinate response in the event of any
threatening disaster situa on or disaster• Direct the relevant Ministries/ Departmentsof the GOI, the State Governments and theSDMAs regarding measures to be taken in
response to any speciﬁc threatening disastersitua on or disaster.
• Coordinate with relevant Central Ministries/
Departments/ Agencies which are expected
to assist the aﬀected State as per protocols
and Standard Opera ng Procedures (SOPs)• Coordinate with the Armed Forces, Central
Armed Police Forces4 (CAPF), the Na onal
Disaster Response Force (NDRF) and otheruniformed services which comprise the GOI’s
response to aid the State authori es• Coordinate with all relevant specialized
scientiﬁc ins tu ons/ agencies responsible
for providing early warning and monitoring• Coordinate with SDRF, civil defense
volunteers, home guards and ﬁre services,
through the relevant administra ve
departments of the State Governments

Na onalDisaster
5 Response
Force(NDRF)

Specially trained force
headed by a Director
General Structured likeparamilitary forces for
rapid deployment

Assist the relevant State Government/District
Administra on in the event of an imminenthazard event or in its a ermath

Union Home Minister; Vice • Human resource development and capacity
Chairman,
NDMA;
building for disaster management within the
Na onalMembers
includingbroad policies and guidelines laid down by
Ins tute ofSecretaries of various nodal
the NDMA
6 Disaster
Ministries
andManagement Departments•
Design, develop and implement training
of(NIDM)
programmes
Government of India and•Undertake research
State Governments and

4

CAPF includes Assam Riﬂes, BSF, CRPF, CISF, ITBP and SSB
17

NATIONAL DISASTER MANAGEMENT AUTHORITY

Name

Composi onheads of na onal levels
scien ﬁc, research andtechnical organiza ons,
besides eminent scholars,scien sts andprac oners.

Vital role
• Formulate and implement a comprehensive
human resource development plan
• Provide assistance in na onal policy
formula on, assist other research andtraining ins tutes, state governments andother organiza ons for successfullydischarging their responsibili es• Develop educa onal materials fordissemina on• Promote awareness genera on

From me to me, the central government no ﬁes hazard-speciﬁc nodal ministries to func on as thelead agency in managing speciﬁc disasters (see Table 1 -3 for current list of disaster-speciﬁc nodal
ministries no ﬁed by GOI).

Table 1-3: Nodal Ministry for Management/ Mi ga on of Diﬀerent Disasters
SN Disaster1. Accident – Air (Civil Avia on)

Nodal Ministry/ Department
Min. of Civil Avia on (MOCA)

2.

Accidents – RailMin. of Railways (MOR)

3.

Accidents – Road

Min. of Road Transport and Highways(MRTH)

4.

Avalanche

Min. of Defence (MOD) – Border Road
Organiza on (BRO)

5.

Biological Emergencies

Min. of Health and Family Welfare (MHFW)

6.

Cold-Wave

Min. of Agriculture and Farmers Welfare(MAFW)

7.

Cyclone/ Tornado

Min. of Earth Sciences (MOES)

8.

DroughtMin. of Agriculture and Farmers Welfare(MAFW)

9.

Earthquake

10. Flood

Min. of Earth Sciences (MOES)
Min. of Jal Shak (MOJS)

11. Floods – Urban

Min. of Housing and Urban Aﬀairs (MHUA)

12. Forest Fire
13. Frost

18

Min. of Environment, Forests, and Climate
Change (MEFCC)
Min. of Agriculture and Farmers Welfare(MAFW)

14. Hailstorm

Min. of Agriculture and Farmers Welfare(MAFW)

15. Industrial and Chemical

Min. of Environment, Forests and Climate
Change (MEFCC)

16. Landslides

Min. of Mines (MOM)

17. Nuclear and Radiological

Dept. of Atomic Energy (DAE)

18. Oil Spills

Min. of Defence (MOD) – Indian Coast Guard(ICG)

NATIONAL DISASTER MANAGEMENT PLAN

SN Disaster
19. Pest A ack
20. Tsunami

Nodal Ministry/ Department
Min. of Agriculture and Farmers Welfare(MAFW)
Min. of Earth Sciences (MOES)

Na onal Disaster Management Authority (NDMA)The Government of India established the NDMA in 2005, headed by the Prime Minister. Under the
DM Act 2005, the NDMA, as the apex body for disaster management, shall have the responsibility forlaying down the policies and guidelines for disaster management for ensuring mely and eﬀec ve
response to disaster. The guidelines of NDMA will assist the Central Ministries, Departments, andStates to formulate their respec ve DM plans. It will approve the Na onal Disaster Management Plan
and DM plans of the Central Ministries/ Departments. It will take such other measures, as it may
consider necessary, for the preven on of disasters, or mi ga on, or preparedness and capacity
building, for dealing with a threatening disaster situa on or disaster. Central Ministries/ Departments
and State Governments will extend necessary coopera on and assistance to NDMA for carrying out
its mandate.
NDMA has the power to authorise the Departments or authori es concerned, to make emergency
procurement of provisions or materials for rescue and relief in a threatening disaster situa on ordisaster. The general superintendence, direc on, and control of the Na onal Disaster Response Force(NDRF) are vested in and will be exercised by the NDMA. The Na onal Ins tute of Disa sterManagement (NIDM) works within the framework of broad policies and guidelines laid down by the
NDMA. The NDMA has the mandate to deal with all types of disasters – natural or human-induced.
However, other emergencies such as terrorism (counter-insurgency), law and order situa ons,
hijacking, air accidents, CBRN weapon systems, which require the close involvement of the security
forces and/or intelligence agencies, and other incidents such as mine disasters, port and harbour
emergencies, forest ﬁres, oilﬁeld ﬁres and oil spills will be handled by the Na onal Crisis Management
Commi ee (NCMC). Nevertheless, NDMA may formulate the guidelines with advice/ inputs drawn
from experts of DAE and facilitate training and preparedness ac vi es in respect of response to RN
emergencies with technical advice obtained from experts from DAE.
Na onal Ins tute of Disaster Management (NIDM)
As per the provisions of the Chapter-VII of the DM Act, Government of India cons tuted the Na onal
Ins tute of Disaster Management (NIDM) under an Act of Parliament with the goal of being thepremier ins tute for capacity development for disaster management in India and the region. The
vision of NIDM is to create a Disaster Resilient India by building the capacity at all levels for disasterpreven on and preparedness. NIDM has been assigned nodal responsibili es for human resource
development, capacity building, training, research, documenta on, and policy advocacy in the ﬁeld of
disaster management. The NIDM has built strategic partnerships with various ministries anddepartments of the central, state, and local governments, academic, research and technicalorganiza ons in India and abroad and other bi-lateral and mul -lateral interna onal agencies. It
provides technical support to the state governments through the Disaster Management Centres(DMCs) in the Administra ve Training Ins tutes (ATIs) of the States and Union Territories. Some ofthem are emerging as centres of excellence in the specialised areas of risk management – ﬂood,
earthquake, cyclone, drought, landslides, and industrial disasters.

19

NATIONAL DISASTER MANAGEMENT AUTHORITY

Na onal Disaster Response Force (NDRF)
The NDRF has been cons tuted as per the Chapter-VIII of the DM Act 2005 as a specialist response
force that can be deployed in a threatening disaster situa on or disaster. As per the DM Act, thegeneral superintendence, direc on and control of the NDRF shall be vested and exercised by the
NDMA. The command and supervision of the NDRF shall vest with the Director General appointed by
the Government of India. The NDRF will posi on its ba alions at diﬀerent loca ons as required foreﬀec ve response. NDRF units will maintain close liaison with the designated State Governments andwill be available to them in the event of any serious threatening disaster situa on. The NDRF isequipped and trained to respond to situa ons arising out of natural disasters and CBRN emergencies.
The NDRF units will also impart basic training to all the stakeholders iden ﬁed by the State
Governments in their respec ve loca ons. A Na onal Disaster Response Academy is opera onal in
Nagpur and new infrastructure is being set up to cater to na onal and interna ona l training
programmes for disaster management. It has also been decided that Disaster Management Training
Wings of four CAPFs (BSF, CRPF, ITBP and CISF) will be merged with this Academy. Experience in majordisasters has clearly shown the need for pre-posi oning of some response forces to augment theresources at the State level at crucial loca ons including some in high al tude regions.

1.14.2

State Level
State Level Disaster Management
Coordination Mechanism

National
DisasterManagement
Authority(NDMA)

CentralGovernment
Ministries/
Departments
State
Government

State
Disaster
Response
Force(SDRF)

State
Executive
Committee(SEC)

State Disaster
Management
Authority(SDMA)

ReliefCommissioner/
Nodal
Department
State
Emergency
Operation
Centre(SEOC)

State
Department/
Line
Agencies

Agencies
With
DisasterManagement
Responsibilities

District
DisasterManagement
Authority(DDMA)

Figure 1-4: State-level disaster management - basic ins tu onal framework
Note: The ﬁgure represents merely the ins tu onal pathways for coordina on, decision -making andcommunica on for disaster management and does not imply any chain of command.
20

NATIONAL DISASTER MANAGEMENT PLAN

As per the DM Act of 2005, each state in India/ Union Territory (UT) shall have its own ins tu onal
framework for disaster management. Each State/UT will have one nodal department for coordina onof disaster management, referred herea er as DM department (DMD), although the name anddepartment is not the same in each State/UT. Among other things, the DM Act, mandates that eachState/UT shall take necessary steps for the prepara on of State/UT DM plans, integra on of measuresfor preven on of disasters or mi ga on into State/UT development plans, alloca on of funds, andestablish EWS. Depending on speciﬁc situa ons and needs, the State/UT shall also assist the Central
Government and central agencies in various aspects of DM. Each state shall prepare its own State
Disaster Management Plan.
The DM Act mandates the se ng of a State Disaster Management Authority (SDMA) and a similarsystem in each Union Territory. At the district level, District Disaster Management Authority (DDMA),
the District Collector or District Magistrate or the Deputy Commissioner, as applicable, will be
responsible for overall coordina on of the disaster management eﬀorts and planning. Figure -1-4
provides schema c view of the typical state-level ins tu onal framework. The ﬁgure represents
merely the ins tu onal pathways for coordina on, decision -making and communica on for disastermanagement and does not imply any chain of command.
State Disaster Management Authority (SDMA)
As per provisions in Chapter-III of the DM Act, each State Government shall establish a State Disaster
Management Authority (SDMA) or its equivalent as no ﬁed by the state government with the Chief
Minister as the Chairperson. In case of other UTs, the L ieutenant Governor or the Administrator shallbe the Chairperson of that Authority. For the UT of Delhi, the Lieutenant Governor and the Chief
Minister shall be the Chairperson and Vice-Chairperson respec vely of the State Authority. In the caseof a UT having Legisla ve Assembly, except the UT of Delhi, the Chief Minister shall be the Chairpersonof the Authority established under this sec on. The SDMA will lay down policies and plans for DM in
the State. The SDMA will approve the disaster management plans prepared by various departments.
It will, inter alia approve the State Plan in accordance with the guidelines laid down by the NDMA,
coordinate the implementa on of the State Plan, recommend provision of funds for mi ga on andpreparedness measures and review the developmental plans of the diﬀerent departments of the Stateto ensure the integra on of preven on, preparedness and mi ga on measures. The State
Government shall cons tute a State Execu ve Commi ee (SEC) to assist the SDMA in the pe rformanceof its func ons. The SEC will be headed by the Chief Secretary to the State Government. The SEC will
coordinate and monitor the implementa on of the Na onal Policy, the Na onal Plan, and the State
Plan. The SEC will also provide informa on to the NDMA rela ng to diﬀerent aspects of DM.
District Disaster Management Authority (DDMA)
As per provisions in Chapter-IV of the DM Act, each State Government shall establish a District Disaster
Management Authority for every district in the State with such name as may be speciﬁed in thatno ﬁca on. The DDMA will be headed by the District Collector, Deputy Commissioner, or District
Magistrate as the case may be, with the elected representa ve of the local authority as the Co Chairperson. The State Government shall appoint an oﬃcer not below the rank of Addi onal Collector
or Addi onal District Magistrate or Addi onal Deputy Commissioner of the district to be the Chief
Execu ve Oﬃcer of the District Authority. The DDMA will act as the plan ning, coordina ng andimplemen ng body for DM at the District level and take all necessary measures for the purposes of
DM in accordance with the guidelines laid down by the NDMA and SDMA. It will, inter alia, prepare
the DM plan for the District and monitor the implementa on of the all relevant na onal, state, anddistrict policies and plans. The DDMA will also ensure that the guidelines for preven on, mi ga on,

21

NATIONAL DISASTER MANAGEMENT AUTHORITY

preparedness, and response measures laid down by the NDMA and the SDMA are followed by all the
district-level oﬃces of the various departments of the State Government.

1.15 Plan Implementa on
The DM Act 2005 enjoins central and state governments to make provisions for the implementa onof the disaster management plans. In this respect, the sec ons of the DM Act 2005 applicable forna onal, state, and district DM plans are 11, 23, and 31. The Chapters V and VI of the DM Act spell out
the responsibili es of the central, state, and local governments with respect to disaster management.
The DM Act states that every Ministry or Department of the Government of India shall makeprovisions, in its annual budget, for funds for the purposes of carrying out the ac vi es andprogrammes set out in its disaster management plan.
The NDMP sets outs the priori es, me frames and deﬁnes the Thema c Areas for DRR along with
Sub-Thema c Areas that must be implemented in a highly distributed, decentralised and coordinatedmanner by the central and state governments. It is not one omnibus plan that must be implemented
by one agency with using one overarching budget; instead it is one that must be ﬁnanced from theunion and state budgets through various ministries and government agencies. The centrally allocatedﬁnances are limited to Na onal Disaster Response Fund and State Disaster Response Fund meant for
immediate relief and emergency response a er a disaster. Since DRR mainstreaming is an integral partof the main plans of centre, central ministries, states/UTs and state/UT -level agencies, there cannot
be a separate ﬁnancial alloca on for it.
The Act mandates that every Ministry and Department of the Government of India and every statemust prepare a DMP in accordance with the NDMP. Respec ve DM authori es must regularly review
and update their DM plans. Central ministries and state governments will integrate DRR into theirdevelopment policy, planning and programming at all levels. They must adopt a holis c approach andbuild mul -stakeholder partnerships at all levels, as appropriate, for th e implementa on of the DMplans. Depending on its nature, diﬀerent components of the NDMP will be implemented within short,medium and long-term meframes ending in 2030, with the ac ons under these meframes o en
running concurrently and not sequentially. In a broad sense, the approach described in the NDMP
applies to all those working for disaster risk reduc on in the country , be it government, private, notfor-proﬁt en es, na onal agencies or interna onal organisa ons.
The plan is highly ambi ous and the complete implementa on of all elements across the country may
take a very long me. Nevertheless, both central and state governments have already madeconsiderable progress and they are expected to make sincere eﬀorts for the im plementa on of theDM plans. The NDMA has prepared and published guidelines covering various aspects of disastermanagement and including a separate one for response (list is given in Annexure-I).
The DM plans of all central ministries/ departments and the states/UTs must be made in accordancewith NDMP and consistent with it in terms of goals and meframes. It is not possible to give an
exhaus ve list of ac vi es envisaging all the disaster risk reduc on func ons pertaining to all the ersof government (central, state and local) and all other stakeholders. Hence the Central Ministries andState Governments should go beyond the ac vi es men oned in this document in iden fying
ac vi es based on the context for pro-ac ve disaster risk reduc on using NDMP as a guide rather
than as a ﬁnal word.

22

NATIONAL DISASTER MANAGEMENT PLAN

2

Hazard Risks and Challenges

2.1 Background
India is the seventh-largest country by area, the second-most populous country with over 1.2 billion
people and the most populous democracy in the World. Bounded by the Indian Ocean on the south,
the Arabian Sea on the south-west, and the Bay of Bengal on the south-east, it shares land borders
with Pakistan to the west; China, Nepal, and Bhutan to the north-east; and Burma and Bangladesh to
the east. In the Indian Ocean, India’s neighbours are Sri Lanka and Maldives. Andaman and Nicobar
Islands share a mari me border with Thailand and Indonesia.

Table 2-1: India - General proﬁle1

FeatureArea

2

Loca on3

Borders/
Neighbouring
Countries

4
5

Major Rivers
Forest6

Coastline

7
8
9
10
11
12

DesertPopula on
States *Union Territories*
Sex Ra oPopula on Density
Annual exponen al
13 popula on growthrate
14 Popula on share
15 Climate

Descrip on
32.87 lakh (3.3 million) sq.km
Situated in southern Asia, the Indian peninsula is separated frommainland Asia by the Himalayas; Lying en rely in the northernhemisphere, India lies between la tudes 8°4' N and 37°6' N;
longitudes 68°7'E and 97° 25'E
North: China, Bhutan and Nepal; Himalayan mountain ranges
Northwest: Afghanistan and Pakistan
South: Sri Lanka and Maldives; Indian Ocean, Palk Strait and the Gulfof Mannar
East: Myanmar and Bangladesh; Bay of Bengal
West: Arabian Sea
Twelve with total catchment area of 252.8 million hectares
692,027 sq.km (21.5 percent of the total geographical area)
7,517 km (the mainland, Lakshadweep Islands, and the Andaman andNicobar Islands)
442,289 sq.km
1.2 billion; Male: 51.5%; Female: 48.5% (Census 2011)28
9940 females per 1,000 males (Census 2011)382 persons per sq.km (Census 2011)
1.64 per cent in 2001-2011 (Census 2011)
Rural: 69%; Urban: 31% (Census 2011)
Tropical monsoon; tropical climate marked by rela vely high summer
temperatures and dry winters. Main seasons: a) Winter (Dec.-Feb.) b)
Summer (Mar.-Jun.) c) South-West monsoon (Jun.-Sep.) and d) Postmonsoon (Oct.-Nov.)(*) Note: From October 31, 20195

Based on GOI website: h ps://www.india.gov.in/india-glance/proﬁle5

The Jammu and Kashmir Reorganisa on Act (2019), bifurcates the state of Jammu and Kashmir into two UTs,a) Ladakh without a legisla ve assembly consis ng of two districts (Leh and Kargil) and b ) Jammu andKashmir (J&K) having a legisla ve assembly consis ng of all other districts of former state .
23

NATIONAL DISASTER MANAGEMENT AUTHORITY

2.2 Hazard Risks and Vulnerabili es
2.2.1 Mul -Hazard Vulnerability
As per the deﬁni on adopted by UNISDR, hazard is a dangerous phenomenon, substance, humanac vity, or condi on that may cause loss of life, injury or other health impacts, property damage, lossof livelihoods and services, social and economic disrup on, or environmental damage. India, due toits, physiographic and clima c condi ons is one of the most disaster-prone areas of the World. Nearly
59 per cent of the landmass is prone to earthquakes of moderate to very high intensity. More than 40
million hectares (12 per cent of land) is prone to ﬂoods and river erosion. Of the nearly 7,500 km longcoastline, close to 5,700 km is prone to cyclones and tsunamis. Nearly 68% of the cul vable area isvulnerable to drought. Large tracts in hilly regions are at risk from landslides and some are prone tosnow avalanches. Vulnerability to disasters/emergencies of CBRN origin also exists. Heightened
vulnerabili es to disaster risks can be related to expanding popula on, urbanisa on, andindustrialisa on, development within high-risk zones, environmental degrada on, and climatechange.
Building Materials & Technology Promo on Council (BMTPC) has prepared the Vulnerability Atlas ofIndia (VAI), which has been updated in 2019 (third edi on) and is available online⁶ . Some of the maps
for the country are provided in Annexure-II. These maps present for each State/UT the hazard map
for earthquake, wind, and ﬂood. The maps available online show not only the boundaries of the hazard
zones of various intensi es but also indicate district-wise areas lying in the diﬀerent intensi es. The
Vulnerability Atlas has been structured to serve as a tool towards natural disaster preven on,
preparedness and mi ga on for housing and related infrastructure at local as well as na onal levels.
In the context of human vulnerability to disasters, economically and socially weaker segments of the
popula on are the ones that are most seriously aﬀected. Within the vulnerable groups, elderly
persons, women, children— especially women rendered des tute, children orphaned by disasters anddiﬀerently abled persons are exposed to higher risks. The DM Act 2005 and Na onal Policy on Disaster
Management 2009 consider disasters to be a) natural and b) human-induced including CBRN for
deﬁning the roles and responsibili es.
Besides with the natural factors discussed earlier, various human -induced ac vi es like increasing
demographic pressure, deteriora ng environmental condi ons, deforesta on, unscien ﬁcdevelopment, faulty agricultural prac ces and grazing, unplanned urbanisa on, construc on of large
dams on river channels etc. are also responsible for accelerated impact and increase in frequency ofdisasters in the country.

2.2.2 Natural Hazards
2.2.2.1 Cyclone and Wind
India's long coastline of nearly 7,500 km consists of 5,400 km along the mainland, 132 km in
Lakshadweep and 1,900 km in the Andaman and Nicobar Islands. About 10 per cent of the World's
tropical cyclones aﬀect the Indian coast. Of these, the majority has their ini al genesis over the Bay of
Bengal and strike the east coast of India. On an average, ﬁve to six tropical cyclones form every year,of which two or three could be severe. Cyclones occur frequently on both the west coast in the Arabian
624

Vulnerability Atlas of India. h p://www.bmtpc.org/DataFiles/CMS/ﬁle/VAI2019/Index.html (accessed Oct.
15, 2019)

NATIONAL DISASTER MANAGEMENT PLAN

Sea and the east coast in the Bay of Bengal. More cyclones occur in the Bay of Bengal than in the
Arabian Sea. An analysis of the frequencies of cyclones on the East and West coasts of India during
1891-2000 shows that nearly 308 cyclones (out of which 103 were severe) affected the East Coast7.
In India, tropical cyclones occur in the months of May-June and October-November. The cyclones ofsevere intensity and frequency in the northern part of the Indian Ocean are bimodal in character, with
their primary peak in November and secondary peak in May. The disaster poten al is par cularly highat the me of landfall in the northern part of Indian Ocean (Bay of Bengal and the Arabian Sea) due tothe accompanying destruc ve wind, storm surges and torren al rainfall. Of these, storm surges are
the greatest killers of a cyclone, by which sea water inundates low lying areas of coastal regions andcauses heavy ﬂoods, erodes beaches and embankments, destroys vegeta on and reduces soil fer lity.

Tropical Cyclones
Tropical cyclone, generally known as ‘cyclone’, is the term used globally to cover tropical weather
systems in which winds equal or exceed ‘gale force’ (minimum of 34 knot, i.e., 62 kmph). These areintense low-pressure areas of the earth-atmosphere coupled system and are extreme weather eventsof the tropics. Although the North Indian Ocean (NIO) Basin (including the Indian coast) generates only
about seven per cent of the World’s cyclones, their impact is compara vely high and devasta ng,
especially when they strike the coasts bordering the North Bay of Bengal. As per broad scaleassessment of the popula on at risk, nearly one third of India’s p opula on is vulnerable to cyclonerelated hazards. Climate change with the resultant sea-level rise and expected increase in severity ofcyclones can signiﬁcantly increase the vulnerability of the coastal popula on.
Though tropical cyclones diﬀer by name across regions, they are classiﬁed according to their windspeed. The classiﬁca on, however, varies fro m region to region. The classiﬁca on used in India 8 ofthese intense low-pressure systems (cyclonic disturbances) is given in Table 2-2.

Table 2-2: Classiﬁca on used in India for tropical cyclones
Type
1
2
3
4
5
6
7

Low Pressure area
Depression
Deep Depression
Cyclonic Storm
Severe Cyclonic Storm
Very Severe Cyclonic Storm
Super Cyclone

Wind Speed
km per hour (kmph)
Knots
Less than 31
Less than 17
31 to 49
17 to 27
50 to 61
28 to 33
62 to 88
34 to 47
89 to 118
48 to 63
119 to 221
64 to 119More than 221
More than 119

Note: One kmph = 0.54 knot; one knot = 1.852 kmph

The coastal states and union territories (UTs) in the country, encompassing 84 coastal districts which
are aﬀected by tropical cyclones. Four states (Tamil Nadu, Andhra Pradesh, Odisha and West Bengal)
and one UT (Puducherry) on the east coast and one state (Gujarat) on the west coast are highly
vulnerable to cyclone disasters.

7

Cyclones and their Impact in India: h ps://ncrmp.gov.in/cyclones-their-impact-in-india/ (accessed Sep. 20,
2019)8
IMD (2016)
25

NATIONAL DISASTER MANAGEMENT AUTHORITY

Storm Surge
Storm surge, a coastal phenomenon, is the inherent destruc ve aspect of cyclones the World over.
Storm surge is an abnormal rise of water generated by a storm, over and above the predicted
astronomical des. It should not be confused with storm de. The rise in water level can cause
extreme ﬂooding in coastal areas par cularly when storm surge coincides with normal high de,resul ng in storm des reaching up to 6 metres or more in some cases. The degree of destruc ve
poten al depends on the storm surge amplitude associated with the cyclone. Large number ofcasual es during tropical cyclones occur as a result of storm surge. Climate change with the resultant
sea-level rise will worsen the impacts of storm surges.

2.2.2.2 Flood
Floods aﬀect an average area of around 7.5 million hectares per year. According to the Na onal
Commission on Floods, the area suscep ble to ﬂoods was es mated in 1980 to be around 40 mill ion
hectares and it is possible to provide reasonable degree of protec on to nearly 80 per cent (32 millionha). Riverine ﬂooding is perhaps the most cri cal climate-related hazard in India. Flood control is a key
element of na onal policies for water resource management. The occurrence of ﬂoods and droughts
is closely linked to the summer monsoon ac vity. Floods occur in almost all river basins of the country.
Heavy rainfall, inadequate capacity of rivers to carry the high ﬂood discharge, inadequate drainage tocarry away the rainwater quickly to streams/rivers are the main causes of ﬂoods. Ice jams or landslides
blocking streams; and cyclones also cause ﬂoods. Out of 40 million hectare of the ﬂood prone area inthe country, on an average, ﬂoods aﬀect an area of around 7.5 million hectare per year. Floods in the
Indo-Gange c-Brahmaputra plains are an annual feature. On an average, a few hundred lives are lost,millions of people are rendered homeless, lakhs of hectares of crops are damaged, thousands ofanimals are aﬀected (killed and injured). The Na onal Flood Control Programme was launched in
1954. Since then, sizeable progress has been made in the ﬂood protec on measures. The global
climate change and the resultant increase in extreme weather events will naturally worsen theuncertain es associated with ﬂoods.

2.2.2.3 Urban Floods
The problem of urban ﬂooding is a result of both natural factors and land-use changes brought about
by urban development. Urban ﬂooding is signiﬁcantly diﬀerent from rural ﬂooding as urbanisa onleads to developed catchments which increases the ﬂood peaks from 1.8 to 8 mes and ﬂood volumes
by up to 6 mes. Consequently, ﬂooding occurs very quickly due to faster ﬂow mes, some mes in ama er of minutes. Urban ﬂooding is caused by the combina on of meteorological, hydrological, andhuman factors. Due to land-use changes, ﬂooding in urban areas can happen very rapidly with large
ﬂow. The challenges of Urban Floods Disaster Management (UFDM) tend to be considerably diﬀerent
from that of ﬂooding in other areas. In 2010, the NDMA published separate guidelines for UFDM.
Problems associated with urban ﬂoods range from rela vely localised incidents to major incidents,
resul ng in inunda on of some or large parts urban areas for several hours to many days. The impact
can vary from being limited to widespread. It may result in temporary reloca on of people, dispersalof animals, damage to civic ameni es, deteriora on of water quality and risk of epidemics.

2.2.2.4 Earthquake
Nearly 59 per cent of India’s territory is prone to moderate to severe earthquakes. Three recent major
earthquakes aﬀected Gujarat in January 2001, Jammu and Kashmir in October 2005 and Sikkim in2011. Many smaller- quakes have been occurring in various parts of India. Seven states in North East
(Assam, Arunachal Pradesh, Nagaland, Manipur, Mizoram, Tripura and Meghalaya ), the Andaman andNicobar Islands and part of eight other States/UTs (Bihar, Gujarat, Himachal Pradesh, U arakhand,
26

NATIONAL DISASTER MANAGEMENT PLAN

Jammu & Kashmir, Ladakh, Punjab and West Bengal) are in Seismic Zone V i.e., prone to very highdamage risk. Wide-spread losses—human and material, collapse of infrastructure and services may
be the major consequences of the earthquake. Hundreds of thousands may be displaced, o en inremote mountainous areas in the North and North-East.

2.2.2.5 Tsunami
Tsunamis (Japanese for “harbour wave”) , also known as a seismic sea wave, are a series of very large
waves with extremely long wavelength, in the deep ocean, the length from crest to crest may be 100
km and more. It is usually generated by sudden displacements in the sea ﬂoor caused by earthquake,landslides, or volcanic ac vity9. Most tsunamis, including the most destruc ve ones are generated bylarge and shallow earthquakes which usually occur near geological plate boundaries, or fault -lines,
where geological plates collide. When the seaﬂoor abruptly deforms the sudden ver cal
displacements over large areas disturb the ocean's surface, displace water, and generate tsunami
waves. Since the wave height in deep ocean will be only a few decimetres or less (i.e., a few inches),tsunamis are not usually felt aboard ships. Nor are they visible from the air in the open ocean. The
waves could travel away from the triggering source with speeds exceeding 800 km/h over very long
distances. They could be extremely dangerous and damaging when they reach the coast , because
when the tsunami enters shallow water in coastal areas, the wave velocity will decrease accompanied
by increase in wave height. In shallow waters, a large tsunami crest height may rise rapidly by several
metres even in excess of 30 m causing enormous destruc on in a very short me10.
As seen on Indian Ocean shores in December 2004, tsunami can cause massive death and destruc on.
They are par cularly dangerous close to their sources, where the ﬁrst waves in the tsunami train canarrive within a few to tens of minutes of the triggering event. The earthquake and resulting tsunami
in Indian Ocean on 26 Dec 2004 had devasta ng eﬀects on India. Many people died and millions weredisplaced. The hardest hit areas were on Southern coast and the Andaman and Nicobar Island.
Tsunamis have the poten al of causing signiﬁcant c asual es, widespread property damage, massive
infrastructure loss and long-term nega ve economic impacts. People caught in the path of a tsunamio en have li le chance of survival. People die from drowning or debris crushing them.

2.2.2.6 Landslides and Snow Avalanches
Landslides
Landslides occur in the hilly regions of India such as the Himalaya, North-East India, the Nilgiris, Eastern
Ghats and Western Ghats. It is es mated that 30 per cent of the World’s landslides occur in the
Himalayan ranges. The Himalayan range, which cons tutes the youngest and most domina ng
mountain system in the World, is not a single long landmass but comprises a series of seven curvilinear
parallel folds running along a grand arc for a total of 3 ,400 kilometres. Landslides are also common inWestern Ghat. In the Nilgiris, in 1978 alone, unprecedented rains in the region triggered about one
hundred landslides which caused severe damage to communica on lines, tea gardens and othercul vated crops. Scien ﬁc observa ons in north Sikkim and Garhwal regions in the Himalayas clearly
reveal that there is an average of two landslides per sq. km. The mean rate of land loss is to the tuneof 120 meter per km per year and annual soil loss is about 2500 tons per sq. km. Landslides have beena major and widely spread natural disaster that o en aﬀect life and property, leading to major
concern.

9h ps://ntwc.ncep.noaa.gov/?page=tsunamiFAQ (accessed Sep 20, 2019)
h p://www.unisdr.org/2006/ppew/tsun ami/what-is-tsunami/backinfor-brief.htm (accessed Sep 20, 2019)

10

27

NATIONAL DISASTER MANAGEMENT AUTHORITY

Snow Avalanches
Avalanches are block of snow or ice descending from the mountain tops at a river like speedy ﬂow.
They are extremely damaging and cause huge loss to life and property. In Himalayas, avalanches arecommon in Drass, Pir Panijal, Lahaul-Spi and Badrinath areas. As per Snow and Avalanche Study
Establishment (SASE), of Defence Research and Development Organisa on (DRDO), on an average,around 30 people are killed every year, due to this disaster in various zones of the Himalayan range.
Beside killing people, avalanches also damage the roads, proper es, and se lements falling in its way.
Traﬃc blockage, structural damages of roads, and retaining wall damages occur most frequently due
to avalanches. Snow avalanches occur in several stretches of the Himalayan range with the following
areas being more vulnerable:•••

Western Himalaya – the snowy regions of J&K, Ladakh, HP and U arakhand, especially Tehri
Garhwal and Chamoli districts
J&K and Ladakh – Higher reaches of Kashmir and Gurez valleys, Kargil, Ladakh and alongsome of the major roads
HP – Chamba, Kullu-Spi and Kinnaur

2.2.2.7 Drought
There is no globally adopted opera onal deﬁni on for drought applicable to all contexts. This is theprimary reason why policy makers, resource planners, and other decision-makers as well as
administrators have considerable diﬃculty recognizing and planning for drought than they do forother disasters. Global Assessment Report (GAR) 2015 notes that agricultural drought is probably themost “socially constructed” of all disaster risks (UNISDR 2015b) and warns that due to global climatechange, its frequency is expected to vary much. To determine the beginning of drought, opera onal
deﬁni ons specify the degree of departure from the long-term (usually at least 30 years) average ofprecipita on or some other clima c variable. Broadly, drought is perceived as sharply felt water deﬁcit
caused by varia ons in the natural hydro-metrological factors, agro-ecological condi ons, moisturerequirements of crops under prevailing cropping choices (systems, pa erns).
The WMO considers drought as a slow creeping natural hazard that occurs in part due to the natural
clima c variability. In recent years, concern has grown world-wide that droughts may be increasing infrequency due to climate change. Responses to droughts in most parts of the world are generally
reac ve in terms of crisis management and are known to be un mely, poorly coordinated anddisintegrated. Conceptual deﬁni ons, formulated in general terms, help people und erstand theconcept of drought. Conceptually, drought is characterised by a protracted period of deﬁcientprecipita on resul ng in water deﬁcits, extensive crop damage, resul ng in loss of yield. Opera onal
deﬁni ons help deﬁne the onset, severity, and end of droughts. No single opera onal deﬁni on ofdrought works in all circumstances, and this is a big part of why policy makers, resource planners, andothers have more trouble recognizing and planning for drought than they do for other natural
disasters. In fact, mostly, decision-makers/ planners now rely on mathema cal indices to decide whento start implemen ng water conserva on or drought response measures. To determine the beginningof drought, opera onal deﬁni ons specify the degree o f departure from the average of precipita onor some other clima c variable over some period. This is usually done by comparing the current
situa on to the historical average, o en based on at least a 30 -years record.
Droughts aﬀect vast areas of the country, transcending State boundaries. A third of the country isdrought prone. Recurrent drought results in widespread adverse impact on people’s livelihoods andyoung children’s nutri on status. It aﬀects parts of Rajasthan (chronically), Gujarat, Maharashtra,

28

NATIONAL DISASTER MANAGEMENT PLAN

Madhya Pradesh (MP), U ar Pradesh (UP), Chha sgarh, Jharkhand, and Andhra Pradesh. Drought is
not uncommon in certain districts. Droughts cause severe distress in the aﬀected areas.
Drought is a phenomenon that is widely considered as a ‘creeping disaster’ whose onset, end, andseverity are diﬃcult to determine. Unlike the suddenly occurring disasters, a drought may develop
very slowly over several months aﬀec ng very large geographical area without causing li le or no
structural damage. The impacts depend on natural condi ons, socio-economic situa on, and the kindof land and water resources as well as the use pa erns in the aﬀected region.
Mostly, the occurrence of droughts is a result of natural climate variability in all the drought-prone
regions and it usually exhibits a certain pa ern of occurrence. While droughts are quite frequent inarid and semi-arid regions, it can occur even in humid regions blessed with abundant rainfall withlower frequency. The capacity to cope depends largely on the technical, ins tu onal, poli cal, andsocial mechanisms to manage the water resources an cipa ng the severity of the drought. Eﬀec ve
mi ga on measures must prevent a drought turning into a famine due to water and food shortages.
Drought results from long period of dry weather and insuﬃcient precipita on, which causes acute dry
condi ons. The Na onal Commission on Agriculture in India deﬁnes three types of droughts:a) Meteorological drought, deﬁned as a situa on when there is more than 25% decrease fromthe long-term average precipita on over an areab) Agricultural drought, signifying the situa on when soil moisture and rainfall are inadequate
to support healthy crop growthc) Hydrological drought resul ng from prolonged meteorological drought manifested indeple on of surface and sub-surface water resources, which could occur even when therainfall is normal, if there has been a substan al reduc on in surface water holding capacity
Most classiﬁca ons emphasize physical aspects of drought, par cularly in the context of agriculture(including livestock rearing), although its impacts will be felt in both farm and non-farm sector. The
direct impacts are usually visible in falling agricultural produc on and heightened food insecurity
among poor and vulnerable sec ons; depleted water levels; higher livestock and wildlife mortality;
ca le and animal migra on; damage to ecosystem from indiscriminate exploita on; increased ﬁrehazards etc. Indirect impacts of drought can be gauged from the reduc on in incomes for farmers andagribusinesses, increased prices for food and fodder, reduc on in purchasing capacity and slump in
consump on, default on agricultural loans, distress sale of agricultural land & livestock, rural unrest,
shrinkage in avenues for agricultural employment etc.
The impact, response, and interven ons would vary depending on at what point of me in a crop
calendar there is acute water or soil moisture deﬁcit. Generally, three situa ons are recognised:a) Early season: delayed rainfall (delayed onset of monsoon), prolonged dry spells a er onsetb) Mid-season: inadequate soil moisture between two rain events, andc) Late season: early cessa on of rains or insuﬃcient rains
The IMD recognizes ﬁve drought situa ons:a) ‘Drought Week’ when the weekly rainfall is less than half of the normalb) ‘Agricultural Drought’ when four drought weeks occur consecu vely during mid -June to
Septemberc) ‘Seasonal Drought’ when seasonal rainfall is deﬁcient by more than the standard devia on
from the normal

29

NATIONAL DISASTER MANAGEMENT AUTHORITYd) ‘Drought Year’ when annual rainfall is deﬁcient by 20 per cent of normal or more, ande) ‘Severe Drought Year’ when annual rainfall is deﬁcient by 25 to 40 per cent of normal or
more
In the absence of an unambiguous criterion, the NDMA Guideline on ‘Management of Drought’ notesthat there is a need to develop a mul -criteria index to classify droughts based on several factors suchas the following:
•
•
•
•
•
•

Meteorological (rainfall, temperature, etc.)
Soil condi ons (depth, type, available water content, etc.)
Surface water use (propor on of irrigated area, surface water supplies, etc.)
Ground water (availability, u liza on, etc.)
Crop (cropping pa ern changes, land use, crop condi ons, anomalies in crop condi on, etc.)
Socio-economic (propor on of weaker sec ons, poverty, size class of farm holdings, etc.)

Increasing severity of drought can lead to a major livelihood crisis with crop losses and widespread
unemployment. It is essen al that along with a drought monitoring system, medium and long-term
area speciﬁc plans be prepared for drought prooﬁng of suscep ble areas. While drought-prooﬁng
measures can signiﬁcantly improve the coping capacity and dampen the impact of drought, if drought
condi ons worsen, many agencies of the state and centre will have to work in concert to prevent
acute rural distress. Since progression of drought is slow, agencies can respond by closely monitoring
the situa on using various technical capabili es available.

2.2.2.8 Cold Wave and Frost
Cold wave and frost are seasonal and localized hazards occurring only in the parts with severe winter.
Prolonged frost condi ons and cold wave can damage certain frost -sensi ve plants causing crops loss.
The suscep bility to frost varies widely across crops. The extent of damage caused by cold wave
depends on temperature, length of exposure, humidity levels, and the speed at which freezing
temperature is reached. It is diﬃcult to predict a d eﬁnite temperature level up to which crops cantolerate cold wave/frost because many other factors also aﬀect it. Cold wave can cause death andinjury to human beings, livestock and wildlife. Higher caloric intake is needed for all animals, including
humans to withstand exposure to cold and poor nutri onal status can prove deadly in extreme cold
condi ons. If a cold wave is accompanied by heavy and persistent snow, grazing animals may beunable to get the requisite food. They may die of hypothermia from prolonged exposure or starva on.
Described below are the IMD deﬁni ons11 for Cold Wave and Cold Day:Wind chill factor plays an important role and brings down the actual minimum temperaturedepending upon the wind speed. The actual minimum temperature of a sta on should be
reduced to “Wind Chill Eﬀec ve Minimum Temperature (W CTn)” based on wind chill factor
using the relevant WMO criteria. For declaring “Cold Wave” and “Cold Day” WCTn should
only be used.
If WCTn is 10°C or less, then only the condi ons for cold wave should be considered. There is a Cold
Wavea) When normal minimum temperature is equal to 10°C or more; Cold Wave if the departurefrom normal is -5°C to -6°C and ‘Severe Cold Wave’ Departure from normal is -7°C or further
1130

h p://imd.gov.in/sec on/nhac/termglossary.pdf (accessed Sep 20, 2019)

NATIONAL DISASTER MANAGEMENT PLANb) When normal minimum temperature is less than 10°C; ‘Cold Wave’ – if the departure fromnormal is -4°C to -5°C and ‘Severe Cold Wave’ Departure from normal is -6°C or less.
c) When WCTn is 0°C or less, Cold Wave should be declared irrespec ve of normal minimum
temperature of the sta on. However, this criterion is not applicable for those sta ons whose
normal minimum temperature is below 0°C
Cold Wave condi ons for coastal sta ons: For coastal sta ons the threshold value of minimum
temperature of 10°C is rarely reached. However, the local people feel discomfort due to wind chill
factor which reduces the minimum temperature by a few degrees depending upon the wind speed.
For coastal sta ons, the “Cold Day” concept may be used following the criteria given below:a) Actual minimum temperature of a sta on be reduced to WCTnb) This WCTn should be used to declare “Cold Wave” or “Cold Day”
c) When minimum temperature departure is -5oC or less over a sta on, “Cold Day” may bedescribed irrespec ve of threshold value of 10oCd) However, when a threshold of 10oC is reached “Cold Wave” be declarede) When a sta on sa sﬁes both the Cold Wave and Cold Day criteria, then Cold Wave has ahigher priority and must be declared
Cold Wave and Cold Day are area speciﬁc phenomena and may be ascrib ed for a Met Sub-division ora part thereof when at least two sta ons sa sfy the criteria.

2.2.2.9 Thunderstorm, Lightning, Squall, Dust Storm, and Strong Wind
Thunderstorm/Lightning, Dust/Hailstorm, Squall, and Strong Wind are hazardous and cause risk to lifeand public property. These are poten ally hazardous for avia on sector as well as to transport, power,
communica on and other socio-economic sectors. Thunderstorms have some importantcharacteris c such as forma on of Squall, strong updra and down dra , towering cumulonimbus
associated with turbulence and icing, in cloud electriﬁca on and associated lightning, localized heavy
rain and hailstorm. As available data of last ten years, about 2,500 people died from lightning strikes
and torren al rains in the country every year. India may also witness an increase in the severity andfrequency of the dust storms and thunderstorms similar to what the nort hern Indian states
experienced recently. Experts also believe that the severity and frequency of thunderstorm/dust
storms is expected to rise in years ahead due to rising global temperature. The increase in occurrence
and severity is a wake-up call for all agencies to take appropriate ac on for preven on, preparedness
and mi ga on in order to save lives, livestock, property and infrastructure.
Thunderstorms
Thunderstorms occur round the year in diﬀerent parts of the country. However, their frequency andintensity is maximum in summer months (March to June). As the most important factor for occurrenceof thunderstorm is the intense hea ng of the atmosphere at surface level and maximum hea ng takes
place in summer months, the frequency of occurrence is maximum in summer months. A
thunderstorm is said to have occurred, if the thunder is heard or lightening seen. Usually the thunder
can be heard up to 40 km from the source of origin. Thunderstorms fall in the category of Meso-gamma
weather systems with spa al extent of around 2~20 km and temporal scale of a few hours. Considering
the intensity, the thunderstorms in India are categorised as moderate and severe thunderstorms asfollows:

31

NATIONAL DISASTER MANAGEMENT AUTHORITY••

Moderate thunderstorm: It is called as moderate thunderstorm, if there is loud peals ofthunder with frequent lightning ﬂashes, moderate to Strong rains and maximum wind speed
29 to 74 kmph
Severe thunderstorm: It is called as severe thunderstorm, if there is con nuous thunder andlightning, Strong rains and maximum wind speed ≥ 75 kmph

SquallThe frequency and intensity of squall are maximum over eastern and northeastern states. Comparing
diﬀerent seasons, the frequency of squall is maximum in pre -monsoon season (March-May) in
diﬀerent parts of the country. However, there is a secondary maximum in the winter season over thenorthwest India. The intensity of squall is maximum in the month of May followed by April. A squall isdeﬁned as a sudden increase of wind speed by at least 29 kmph (16 knots) with the speed rising to 40
kmph (22 knots) or more and las ng for at least one minute. The squalls are of two types:••

Moderate squall: It is called as moderate squall, if surface wind speed (in gusts) is less than
80 kmphSevere squall: It is called as severe squall, if surface wind speed (in gusts) is greater than 80
kmph

Dust Storm
The northwest India experiences convec ve dust storms called “aandhi” locally during the pre monsoon season. The frequency of dust storm is maximum over Rajasthan followed by Haryana,
Punjab and west UP. The dust storm mainly occurs in the pre-monsoon season and it is maximum inthe month of May in terms of frequency and intensity. The dust storms are of three types:•••

Slight when the wind speed is less than 41 kmph and visibility is 500 to 1000 metres
Moderate when the windspeed is 42 to 79 kmph and visibility is 200 to 500 metres
Severe when the surface wind speed (in gusts) more than 80 kmph and visibility is less than
200 metres

Lightning
Lightning is a high-current electric discharge that occurs in the earth's atmosphere and that has total
path length of the order of few kilometers. The peak power and total energy in lightning are very high,the peak power that is dissipated by a lightning discharge is on the order of 100 million wa s permeter of channel and the peak channel temperature approach 30,000 °C. Peak currents in a lightning
discharge range from several to hundreds of kiloamperes (kA), with typical value being 40 kA.
Predic on of lightning as to the precise me and loca on is very diﬃcult. In the atmosphere, three
types of discharges take place: a) Thundercloud (intra-cloud), b) One cloud to another (inter-cloud)and c) Cloud to ground (CG). Aircra s can be hit by ﬁrst two while the third type takes a toll on lifeand property on the ground.

2.2.2.10 Cloudburst and Hailstorms
Cloudburst12
A cloudburst is an extreme amount of precipita on in a short period, some mes accompanied by hailand thunder, that can create ﬂood condi ons. It is not, as is some mes understood, the breaking open
1232This sec on relies on publica ons (reports, circulars, research papers) of IMD and NCMRWF.

NATIONAL DISASTER MANAGEMENT PLAN

of a cloud resul ng in the release of huge amounts of water. According to the IMD, if rainfall of about
100 mm or above per hour is recorded over a place that is roughly less than 100 sq.km area, it isclassiﬁed as a cloudburst event. By this deﬁni on, 50 mm rainfall in half an hour would also beclassiﬁed as a cloudburst. To put this in perspec ve, India, in a normal year, gets about 1160 mm
annual rainfall. A cloudburst would therefore account for 10-12 per cent of the annual rainfall of thatarea in just an hour. At mes, a large amount of runoﬀ from higher eleva ons is mistakenly conﬂatedwith a cloudburst. They are diﬃcult to forecast because they occur over a very small area. Forecasts
for a very small area are diﬃcult to predict. However, using Doppler radars it is possible to forecast
the possibility of cloudbursts about six hours and some mes 12-14 hours in advance.
However, cloudbursts are infrequent as they occur only via orographic li , i.e., occasionally when awarm air parcel mixes with cooler air, resul ng in sudden condensa on. Cloudbursts do happen inplains as well, but there is a greater probability of them occurring in mountainous zones; it has to dowith the terrain. Hilly terrains aid in heated air currents rising ver cally upwards, thereby, increasing
the probability of a cloudburst situa on. The rainfall itself does not result in the death of people,
though some mes, the raindrops are big enough to hurt people in a sustained downpour. It is theconsequences of such heavy rain, especially in the hilly terrain, that causes death and destruc on.
Landslides, ﬂash ﬂoods, houses and establishments ge ng swept away and cave -ins lead to thedeaths. There is a paucity of past data on cloudbursts; in addi on, since only some of them get counted– only those that result in death and destruc on – there is a problem of accuracy as well. Under global
climate change scenarios, the frequency of high intensity rainfall events is expected to increase andconsequently frequency of cloudburst events may also increase.

Hailstorm13
India is among the countries in the world with the highest frequency of hail. There are about 29 haildays per year of moderate to severe intensity. The hailstorm ac vity that occurs usually in the monthsof April and May occurred during February-March in 2014. About 25% of total occurrence in the pastrecorded hailstones of 3-cm or more diameter. The hailstorms are mainly observed in the winter andpre-monsoon seasons with virtually no events a er the onset of the southwest monsoon.
Hail is a solid, frozen form of precipita on that causes extensive damage to property and crop. Hot,
humid a ernoon hours during the summer are the most congenial for development of hailstorms,
which usually form over a rela vely small area and pass over within a very short period. At mes, it
can cause considerable crop damage in brief spell las ng a few minutes. Hail is o en associated withthunderstorm ac vity and changing weather fronts. This is formed in huge cumulonimbus clouds,
commonly known as thunderheads. The IPCC reports cau on that there are indica ons that a warming
climate would favour an increase in the intensity and frequency of extreme events such as heat waves
and precipita on extremes. Hail and thunderstorms are extreme forms of weather events thatdeserve special a en on in view of climate change. Hailstorms are of three types:•••

Slight, when it is sparsely distributed, usually small in size and o en mixed with rain
Moderate, when it is abundant enough to whiten ground
Strong, if it includes at least a propor on of large stones

As a thunderstorm moves along, it may deposit its hail in a long narrow band (o en several kilometreswide and about 10 kilometres long) known as a hail-streak or hail-swath. If the storm should remain
almost sta onary for some me, substan al accumula on of hail is possible. Its size and shape depen don how fast the storm is moving and how strong the updra s are inside the storm. A typical hail -streak
is about 1.5 km wide and 8 km in length. However, these may vary from a few acres to large belts,
13This sec on relies largely on Bal et al 2014
33

NATIONAL DISASTER MANAGEMENT AUTHORITY

about 16 km wide and 160 km long. The volume of hail reaching the ground falls at a speed of about
40 m/sec and is usually less than one-tenth the volume of rain produced by a thunderstorm.
The hail-related damage depends on the size of hailstones and number that fall per unit area during ahail fall, the wind force during the event and the type of area where it falls. The extent of crop -haildamages also varies depending on the stage of occurrence of hail during the crop growing season.
Even a short episode of hail can cause severe injury to crops, fruit trees, both downgrading the quality
and causing subsequent losses due to diseases like blight, mould, canker and fruit rots. One among
the world’s deadliest hailstorms recorded in history occurred on 30 Apr, 1888 in U ar Pradesh killingat least 230 people, and over 1600 sheep and goats. According to the Commissioner of Agriculture,
Maharashtra, the hailstorms damaged various hor cultural crops over approximately 16 lakh acres.
Hail being a very short term and localized phenomena, its predic on well in advance to inform all
stakeholders for adequate preven ve measures is a major challenge for even the most technologicallyadvanced and hail-prone countries like the USA. India, being situated in the tropical and subtropicalregion, the frequency is less compared to the mid-la tude and temperate countries. However, withclimate change, the instances of severe weather aberra ons are increasing.

2.2.2.11 Glacial Lake Outburst Flood (GLOF)
A Glacial Lake Outburst Flood (GLOF) is a type of ﬂood occurring when water dammed by a glacier ora moraine is released. When glaciers melt, they some mes form lakes on mountaintops. The water inthese glacial lakes accumulates behind loose naturally formed ‘dams’ made of ice, sand, pebbles andice residue. Glacial lake volumes vary, from several MCM to hundreds of MCM of water. But these are
inherently unstable and disturbances such as avalanches, falling boulders, earthquakes, or even simply
the accumula on of too much water can breach the ‘dam’, unleashing sudden, poten ally disastrous
ﬂoods in nearby communi es. A catastrophic failure of the containing ice or glacial sediment canrelease this water over periods of minutes to days. Peak ﬂows as high as 15,000 cubic metres per
second have been recorded in such events. GLOF events have killed thousands in many parts of theworld and some of the largest events occurred in the Himalayas.
The Indian Himalayan Region (IHR), with geographical coverage of over 5.3 lakh kilometre square,
extends over 2,500 kilometres in length between the Indus and the Brahmaputra river systems. Whileglacial lake hazards and glacial lake distribu ons are inves gated in many glaciated regions of theworld, rela vely, there has been less a en on to these in the Indian Himalayas. In physiographic
terms, the IHR extends from the foothills in the south (Siwaliks) to Tibetan plateau in the north (TransHimalaya). Three major geographical en es, the Himadri (Greater Himalaya), Himanchal (Lesser
Himalaya) and the Siwaliks (Outer Himalaya), extending almost uninterrupted throughout its length,
are separated by major geological fault lines. The Na onal Mission for Sustaining the Himalayan
Ecosystem (NMSHE), one of the eight missions under the Na onal Ac on Plan on Climate Change(NAPCC) is dedicated to sustainable development of the region, understanding climate change impacts
and examining adapta on strategies for the region. The Himalayan states /UTs include—J&K, Ladakh,
HP, U arakhand, Sikkim, Arunachal Pradesh, Nagaland, Manipur, Mizoram, Trip ura, Meghalaya, andtwo par al hill states, namely Assam and West Bengal.
The clima c change/variability in recent decades has made considerable impacts on the glacier
lifecycle in the Himalayan region. Scien ﬁc studies have noted glacier retreat occurring in most partsof the Hindu Kush Himalaya, which has given rise to the forma on of numerous new glacial lakes.
Glacial lakes are an indirect indicator of glacier change and unstable lakes can present hazards todownstream loca ons. The Geological Survey of India (GSI) lists 9,575 glaciers in IHR, of which 267 areover 10 sq.km. One of the pioneering regional glacial lake inventories has provided a qualita ve

34

NATIONAL DISASTER MANAGEMENT PLAN

classiﬁca on of 251 glacial lakes greater than 0.01 km2 in area. These glacial lakes are present in J&K,
Ladakh, HP, U arakhand, Sikkim and Arunachal Pradesh. Many of these glacial lakes present moderate
to severe risks to the downstream loca ons. The hazard of Glacial Lake Outburst Flood (GLOF) can getaggravated in case of cloud burst situa on in the area.
In Sikkim Himalaya many glacial lakes are in the process of forma on. There are high chances ofburs ng of these lakes due to their forma on in weak moraine structures. It may cause hugedevasta on in the downstream in the case of burs ng. The GLOF hazard from South Lhonak glaciallake, located in the extreme North-western part and one of the fastest growing lakes in Sikkim
Himalaya, is of par cular concern. The lake is fast increasing in its size in an extremely abnormal way
due to the mel ng of the South Lhonak glacier a ached with the lake and addi on melt water fromadjoining North Lhonak glacier and main Lhonak glacier. The study of past satellite data of Lhonak
glacier lake area revealed that the area of the lake has increased from 0.18 km2 in 1976 to 1.26 km2
by 201314. The abnormal growth of the volume of the lake greatly increases the risk a GLOF event.
Based on the current inventory and recognising the risk of GLOF events in the IHR, the CWC ismonitoring 467 glacial lakes and water bodies with water spread area more than nearly 0.4 Sq.km(Singh and Gupta 2017).

2.2.2.12 Heat Wave
Heat wave is a period of abnormally high temperatures that leads to physiological stress, whichsome mes can claim human life. The World Meteorological Organiza on deﬁnes a heat wave as ﬁve
or more consecu ve days during which the daily maximum temperature exceeds the average
maximum temperature by ﬁve degrees Celsius. Diﬀerent countries deﬁne heat wave diﬀerently incontext of their local condi ons. Heat Waves typically occur between March and June, and in somerare cases even extend un l July. Heat waves are more frequent over the Indo-Gange c plains of India.
On an average, 5-6 heat wave events occur every year over the northern parts of the country. In thenorthern plains of the country, dust in suspension occurs in many years for several days, bringing
minimum temperature much higher than normal15 and keeping the maximum temperature a round or
slightly above normal.
Heat wave and Hot Day are area speciﬁc phenomena and may be ascribed for a Met Sub-division or apart thereof, when at least two sta ons sa sfy the criteria. According to revised terminology of the
IMD applicable from January 201616, in India, it will be considered as heat wave if the maximum
temperature of a met-sub-sta on reaches at least 40°C or more in the plains, 37°C or more in coastal
areas and at least 30°C or more for hilly regions. IMD deﬁnes heat wave 17 when departure from
Normal is 4.5°C to 6.4°C and Severe Heat Wave when departure from normal is >6.4°C. Similarly, forthe plains heat wave is when actual maximum temperature ≥ 45°C and Severe Heat Wave when actual
maximum temperature ≥47°C. To declare a heat wave, the condi on should be recorded in at least at
two sta ons in a Meteorological sub-division for at least two consecu ve days. A heat wave will bedeclared on the second day.
Higher daily peak temperatures and longer, more intense heat waves are becoming increasingly
frequent globally due to climate change. India too is feeling the impact of climate change in terms ofincreased instances of heat waves that are more intense in nature with each passing year and have adevasta ng impact on human health thereby increasing the number of heat wave casual es. The
14

Based on informa on posted on NMSHE website, h p://knowledgeportalnmshe.in/programme_details.aspx?C=57569ABD-ECC5-48B3-8F99-C0EBD6DFDC9F (accessed Sep 20, 2019)15
Normal is the long term (over 30 years) annual average
16
Forecas ng Circular No. 5/2015 (3.7), applicable from 1-Jan-201617
Guidelines for prepara on of Ac on Plan Preven on and Management of Heat Wave, NDMA, 201735

NATIONAL DISASTER MANAGEMENT AUTHORITY

health impacts of Heat Waves typically involve dehydra on, heat cramps, heat exhaus on and/or heatstroke. The signs and symptoms are as follows:•••

Heat Cramps: Edema (swelling) and Syncope (Fain ng) generally accompanied by fever
below 39oC (102oF)
Heat Exhaus on: Fa gue, weakness, dizziness, headache, nausea, vomi ng, muscle cramps
and swea ng
Heat Stroke: Body temperatures of 40 oC (104oF) or more along with delirium, seizures orcoma, which is a poten ally fatalThis unusual and uncomfortable hot weather can impact human and animal health. It can cause major
disrup on in community infrastructure such as power supply, public transport and other essen alservices. Heat wave is considered a “silent disaster” as it develops slowly.

2.2.3 Human-induced Hazards
2.2.3.1 Chemical (Industrial) Disasters
With rapid economic development, there has been spread of industries from small to large across thecountry. There is rela vely higher presence of industrial sector along the west coast, largely due tothe proximity to raw materials and ports. The states with very large number of chemical industries are
Gujarat, Maharashtra, U ar Pradesh (UP), Tamil Nadu (TN), MP, and Punjab. Due to the regional
concentra on of chemical companies in certain pockets, the chemical hazard has increased manyfolds. The growth of industries has led to an increase in the risk of occurrence of incidents associatedwith hazardous chemicals (HAZCHEM) and hazardous materials (HAZMAT) 18. These events occur due
to mishaps or failures in industry and negligence in following interna onal codes and standards forchemical handling which aﬀects the industrial func oning, and produc vity. While the common
causes for chemical accidents are deﬁciencies in safety management systems or human errors, naturalcalami es or sabotage may also trigger such accidents. Chemical/ industrial accidents are signiﬁcantand have long term impact on the community and environment. It leads to injuries, pain, suﬀering,loss of lives, damage to property and environment. Hence, a robust plan and mi ga on measureneeds to be adapted to overcome the hazard. The sugges ons from several industry associa ons haverecommended the implementa on of the updated and relevant Interna onal Organiza on forStandardiza on (ISO) and Occupa onal Health and Safety Assessment Series (OHSAS) standards to
produc on and storage of chemicals. There are speciﬁc norms applicable to industries producing,storing or handling hazardous chemicals.

2.2.3.2 Nuclear and Radiological Emergencies (NRE)
A nuclear disaster is construed as poten ally a low probability event, however very high in damage
impact, could be caused by detona on of nuclear warhead or explosion of an Improvised Nuclear
Device (IND) with associated release of large amounts of devasta ve energy due to Blast, Thermal andRadioac ve material. Secondary eﬀects occurring later might result in fall out of radioac ve dust. The
nuclear and radiological emergencies could be due to accidents at opera ng nuclear facili es /incidents in public domain that could poten ally release radioac ve materials. The cause of these
events could poten ally arise from nuclear facility/ malicious acts of radioac vity dispersal by
explosion of Radiological Dispersal Device (RDD). The occurrence of these kinds of emergencies could
be of probability marginally higher but based on the scale of the accident/ incident, the poten al
impact of damage will be restricted to less domain.
18

36

Na onal Disaster Management Guidelines – Chemical Disasters, NDMA (2007)

NATIONAL DISASTER MANAGEMENT PLAN

Nuclear weapons, a major accident in a nuclear power plant or an accidental exposure of radia on,
due to accident with the radioac ve material during transporta on, faulty prac ces, and mechanicalfailure in a radia on facility can lead to nuclear or radiological emergency. Even though such situa ons
may not arise easily, everyone needs to be prepared to face such emergencies. All organiza ons
dealing with nuclear and radiological material have an inherent culture of safety, follow best safety
prac ces in the sector, and they apply high standards to ensure minimum risk. However, nuclear
emergencies can s ll arise due to factors beyond the control of the opera ng agencies from humanerror, system failure, sabotage, extreme natural events like earthquake, cyclone, ﬂood, tsunami or a
combina on of these. Such failures, even though of very low probability, may lead to on-site or oﬀsite emergencies. To counter this, proper emergency preparedness plans must be in place so that
there is minimum loss of life, livelihood, property, and impact on the environment.
A Nuclear and/or Radiological Emergency (NRE) is an incident resul ng in, or having a poten al toresult in, exposure to and/or contamina on of the workers or the public, exceeding the respec ve
permissible limits (see NDMA’s guidelines for NRE 19). These emergencies are classiﬁed into ﬁve broadgroups as follows:
1)

2)
3)
4)
5)

An accident taking place in any nuclear facility of the nuclear fuel cycle including thenuclear reactor, or in a facility using radioac ve sources, leading to a large-scale release ofradioac vity in the environment
A 'cri cality' accident in a nuclear fuel cycle facility where an uncontrolled nuclear chain
reac on takes place inadvertently leading to bursts of neutrons and gamma radia on
An accident involving radioac ve material package during its transporta on
The malevolent use of RDD or IND by terrorists
A large-scale nuclear disaster resul ng from a nuclear weapon a ack, which would lead tomass casual es and destruc on of large areas and proper es. Unlike a nuclear emergency,
the impact of a nuclear disaster is beyond the coping capability of local authori es and calls
for handling at the na onal level

In this context, it may be men oned that the Interna onal Atomic Energy Agency (IAEA) classiﬁes theabove emergency scenarios under two broad categories – a) nuclear and b) radiological:a)b)

A nuclear emergency refers to a situa on in which there is, or is presumed to be, a hazard
due to the release of energy along with radia on from a nuclear chain reac on (or from thedecay of the products of a chain reac on). These covers accidents in nuclear reactors,'cri cality' situa ons in fuel cycle facili es, nuclear explosions, etc.
All other emergency situa ons which have the poten al hazard of radia on exposure due
to decay of radioisotopes, are classiﬁed as radiological emergencies.

While the overall objec ve is to prevent NRE, there is also the need to adequately prepare for such
emergencies. An NRE must be managed through very well planned and established mechanisms –structural and non-structural – in a manner that will minimize risks to health, life and the environment.
Eight nuclear/ radiological emergency scenarios envisaged in the disaster planning are listed below(see NDMA’s guidelines on NRE20 for a brief descrip on of each):1) Accidents in Nuclear Power Plants and other facili es in the Nuclear Fuel Cycle
2) ‘Cri cality’ Accidents
19

Na onal Disaster Management Guidelines – Management of Nuclear and Radiological Emergencies, NDMA
(2009)
20
ibid
37

NATIONAL DISASTER MANAGEMENT AUTHORITY

3)
4)
5)
6)
7)
8)

Accidents during transporta on of radioac ve materials
Accidents at facili es using radioac ve sources
Disintegra on of satellites during re-entry
Nuclear/Radiological terrorism and sabotage at nuclear facili esState-sponsored nuclear terrorism
Explosion of nuclear weapons

2.2.3.3 Biological and Public Health Emergencies (BPHE)
Disasters related to this sub-group are biological emergencies and epidemics, pest a acks, ca leepidemics and food poisoning. Biological emergency is one caused due to natural outbreaks of
epidemics or inten onal use of biological agents (viruses and microorganisms) or toxins throughdissemina on of such agents in ways to harm human popula on, food crops and livestock to cause
outbreaks of diseases. This may happen through natural, accidental, or deliberate dispersal of such
harmful agents into food, water, air, soil or into plants, crops, or livestock. Apart from the naturaltransna onal movement of the pathogenic organisms, their poten al use as weapons of biological
warfare and bioterrorism has become far more important now than ever before. Along with nuclear
and chemical agents, many biological agents are now considered as capable of causing large-scalemortality and morbidity.
Handling exo c pathogens warrants suitable infrastructure, n otably, high containment laboratories ofbio-safety levels 3 and 4; recruitment of highly commi ed, dedicated and trained professionals;
con nuous availability of diagnos c reagents; enhancement of skills at various echelons of healthprofessionals in early iden ﬁca on of such infec ons, inves ga on of outbreaks and ins tu on of
speciﬁc control measures. Current system of surveillance and mechanism to control the outbreak ofendemic diseases are through the Na onal Programme for Surveillance of Communicable Diseases.
Natural outbreaks of disease may become epidemics and assume disastrous propor on if notcontained in the ini al stages. Pest infesta ons have recurred as major disasters for the agrarian
economy of India since me immemorial. Locust swarms coming from Central Asia used to be a major
cause for concern. Besides such consolidated events, infesta on of localized pests is a threat to plant
as well as human life. A major factor responsible for deteriora on and the loss of food grai ns, theirproducts and the economic losses besides health hazards is the contamina on caused by rodents andinsects. Pest control is achieved primarily through chemical methods subject to safety standards andregulatory norms for the safe use of such chemicals.
The growth of human society has rested largely on the cul va on of crops and domes ca on ofanimals. As crops and animals became necessary to sustain a divergent social structure, the deple onof these resources had far-reaching consequences. Along with the growth of socie es, crop and animal
diseases acquired more and more importance. Infec ous agents are constantly evolving, o en
acquiring enhanced virulence or epidemic poten al. As large number of people now travels within andacross national boundaries, the likelihood of fast global spread of epidemics has increased
drama cally making localised outbreaks into na onal epidemics and global pandemics. As our society
is in a state of ﬂux, novel pathogens emerge to pose challenges not only at the point of primary contact
but also in far removed loca ons. The increased interac on between humans and animals has
increased the possibili es of zoono c diseases emerging in epidemic form. The Biological DRR covers
the legal frameworks and institu onal aspects needed for addressing safety and security of microbial
agents, managing epidemics, containing biological terrorism (BT), managing threats to livestock, andall forms of agriculture.

38

NATIONAL DISASTER MANAGEMENT PLAN

Desert locusts ﬂy with the wind and can travel 100-150 km in a day. The Bombay locust ( Nomadacris
succincta) was a major pest in India and South-Eastern Asia in the 18th and 19thcenturies but has
seldom swarmed since the last plague in 1908. The desert locust swarms from as far as Africasome mes can reach India and Pakistan crossing the Indian Ocean. The Locust Control and Research
Division under MAFW Keeps constant vigil through ﬁeld surveys to prevent crop losses due to locusta ack in approximately two lakhs sq.km of Scheduled Desert Area in the States of Rajasthan andGujarat. Locust Watch under FAO monitors the locusts worldwide and issue early warnings tocountries about locust swarms. A er receiving warning, Government takes urgent measures formonitoring and control.
Directorate of Plant Protec on Quaran ne and Storage under the MAFW with sub-oﬃces across India,
is the apex organiza on responsible for taking measures related to plant protec on. Such measures
are important in the overall crop produc on programmes for sustainable agriculture. Plant protec on
ac vi es encompasses ac vi es aimed to minimizing crop losses due to pests through integrated pest
management, plant quaran ne, regula on of pes cides as well as locust warning and control.
To eﬀec vely tackle the issue of livestock health, the Department is supplemen ng the ac vi es of
the State Governments/ Union Territories through 'Livestock Health & Disease Control Scheme’, which
has the following components:
1)
2)
3)
4)
5)
6)
7)
8)
9)

Assistance to States for Control of Animal Diseases
Professional Eﬃciency Development
Na onal Project on Rinderpest Surveillance and Monitoring
Foot and Mouth Disease Control Programme
Na onal Animal Disease Repor ng System
Peste des Pe ts Ruminants Control Programme
Brucellosis Control Programme
Establishment and Strengthening of exis ng Veterinary Hospitals and Dispensaries
Classical Swine Fever Control Programme

2.2.3.4 Accidents – Rail, Air, Road and Water
The fast pace of development brings with it increasing frequency of various types of accidents as more
and more people are involved in diverse economic ac vi es. The number of air accidents, cases ofboat capsizing, building collapses, ﬁres in built environments – residen al, commercial and industrial,
fes val related incidents involving large number of people, forest ﬁres, emergencies in mines(ﬂooding, collapse, etc.), oil spills, rail accidents, road accidents, stampedes, transporta on of
hazardous material (HAZMAT) related accidents etc . are increasing. While all these are ma ers of
utmost concern, not all of them fall within the purview of the NDMP. Certain speciﬁc agencies such as
the Indian Coast Guard have the primary responsibility of addressing incidents of oil spills and ships inthe coastal waters. While the cases of ﬁres in the built environment and forests are included in theplan, local authori es address them in accordance with the relevant emergency management
systems. The primary way to reduce risks is through mainstreaming risk reduc on in development andgovernance. As part of the overall DRR plan, systems for disaster preparedness and response are being
strengthened at all levels, which in turn will help in reducing the number of accidents and improve thecapacity to respond.

2.2.3.5 Emergencies Associated with Mass Gatherings
Throughout the country, frequently, there are various kinds of events that a ract crowds large andsmall, at varying types and styles of venue. The degree and quality of preparedness to cope with39

NATIONAL DISASTER MANAGEMENT AUTHORITY

expected or unforeseen emergencies arising from such events vary greatly. Inadequate planning canincrease risks associated with insuﬃcient or ineﬀec ve spectator management or service provision.
The evidence lies in the large number of public events where mul ple injuries, illness and deaths haveoccurred. Emergencies and disastrous incidents associated with mass gatherings is a world-wide
phenomenon.
During fes vals or events a rac ng mass gathering - railways, roadways and airways etc. may
experience unexpected temporary surge in number of people at such loca ons. Agencies responsible
for opera on and management at such places would need to include “crowding” and ‘crowd
behaviour’ as hazard risk while formula ng strategic plan for public safety. Accordingly, it will benecessary to pay a en on to implemen ng special arrangement necessary for managing the crowds
and crowd behaviour. For the beneﬁt of the state governments, local authori es and other agencies,
NDMA has published a guideline on mass gatherings21.
Depending on the event, there could be surge in number of people at railway sta ons, bus terminals
and airports. Framework suggested in this document paves way in formula ng public safety plan byagencies like railways, bus transport and airways. These plans are to be developed in consulta on withlocal authori es and event administrator/ organiser. As crowd disasters are local events, disastermanagement is primarily the responsibility of the organizers and local/district administra on withsupport, guidelines from the state and the na onal authori es.
While planning events, organisers tend to overlook likely emergencies that could arise or fail toconsider major emergencies and the worst-case scenarios. It is necessary to recognise that such risks
are inevitably associated with large events, and therefore call for appropriate planning andprepara on. Planning for public events requires coopera on between event organisers and relevant
government, private and community organisa ons. Quite simply, the decisions of one party in theplanning stage can have an impact on the preparedness of another, so a sharing of knowledge andinforma on is impera ve prior to the event. While event promoters or managers have primary
responsibility for planning and prepara on, the involvement of health professionals and emergency
managers in the pre-event planning phase may contribute to a safer, and therefore more successful,event.
The NDMA guideline lists six major causes and triggers for crowd disasters which are summarised
below, but are described in detail in the guideline:
1. Structural – The infrastructure, condi ons and arrangements at the venue may not beadequate (collapse of barricades, fencing, temporary structures, insuﬃcient exit, diﬃcult
terrain, slippery/muddy roads, etc.)
2. Fire/Electricity – Risky prac ces involving ﬁre and electricity ranging from makeshi
facili es, shops, cooking, careless use of easily inﬂammable materials, non-availability or
malfunc oning ﬁre ex nguishers, illegal electric connec ons, and many such possibili es
3. Crowd Control – Crowds exceeding the capacity of the venue, poor management resul ng in
confusion and failure of all orderliness, not having enough emergency exits, inadequacy ofsystems to eﬀec vely communicate with the crowd and similar problems
4. Crowd Behaviour – There are numerous issues known to be associated with the behaviour ofcrowds which is diﬀerent from what is expected from an individual that tend to worsen
emergency situa ons that may include unruly, irresponsible and angry responses.

21

40

Managing crowd at events and venues of mass gathering, NDMA, 2014.

NATIONAL DISASTER MANAGEMENT PLAN

5. Security – Under deployment of security personnel to regulate to control crowd, ﬂaws in theplanning of security arrangements
6. Lack of Coordina on between Stakeholders – Signiﬁcant coordina on gap between agencies
associated with the organising of the event and authori es
The experience shows that there is need for properly integrated approach for the crowd management
which the state and local authori es must recognise and implement. The state govern ments must
review exis ng norms and regula ons and amend them if required to manage the emergencies arisingfrom mass gatherings.

2.2.4 Fire Risk
2.2.4.1 Fires in Built Environment
Fires can start due to human ac vi es or from natural causes. Forest ﬁres can start from either naturalcauses or human ac vity or from a combina on of both. The most common ﬁres are the residen al
and non-residen al structural ﬁres caused usually by human ac vi es. Most industrial and chemicalﬁres are triggered by human ac vity. They are some mes caused by human errors, faulty designs, ormechanical failures. Fire can also be the secondary eﬀect of a disaster like earthquake. Secondary ﬁresa er a disaster like earthquakes cons tute a substan al and heavy risk. Damage to natural gas
systems during an earthquake can lead to major ﬁres and explosions. Damages to electrical systems
during a disaster can ignite major ﬁres. The growth of ﬁre-services in the country has been on an adhoc basis and needs to be professionalized. Varying risk scenarios need diﬀerent types of equipment.
The risk varies with geographical loca on such as hilly area, coastal-area, desert–area, and with
diﬀerent types of residen al (medium/ low-rise/ high-rise) buildings, industrial, commercial area or a
combina on of these. There is considerable need for skill upgrade of the staﬀ and moderniza on of
the en re ﬁre service system. The NDMA guideline 22 on ﬁre services notes that the Standing Fire andAdvisory Council (SFAC) has stressed the urgent need to strengthen the Fire and Emergency Services(F&ES) and overcome major shortcomings in the response and its capabili es.

2.2.4.2 Forest Fire Risk
India is one of the richest areas of biodiversity in the world having nearly seven lakh square kilometresof forest cover. Increasing human interference is a major cause for the incidents of the forest ﬁres²³.
Despite its natural and essen al roles, ﬁre has nega ve consequences when it conﬂicts with the public
interest. Examples of nega ve impacts inc lude loss of homes, property and cri cal infrastructure,
damage to domes c watersheds and destruc on of commercially valuable mber. Smoke from forest
ﬁres can also interfere with road and air transporta on, inhibit tourism, and cause serious publichealth problems. It is also a threat to human se lements dwelling within or adjacent to the forests.
Forest ﬁres in India are generally ground ﬁres. As per Forest Survey of India (FSI), which has been
conduc ng ﬁeld inves ga ons since 1965, human ac vi es trigger nearly 95 per cent of the forest
ﬁres in India. Forest ﬁre is a major cause of injury and loss to forests. Area aﬀected by forest ﬁreannually is nearly 35 million hectares. In general, all over the world the main causes of forest ﬁres are
anthropogenic. The data on forest ﬁres in India is very weak and needs to be improved. FSI's 1995
data considers nearly 50 per cent of the forest areas as ﬁre prone with 43 per cent having occasionalﬁre incidents. According to this assessment, very high, high, and frequent forest ﬁres occur in 0.84 percent, 0.14 per cent and 5.16 per cent of the forest areas respec vely. The states with frequent

22
23

NDMA Guideline on Scaling, Type of Equipment and Training of Fire Servi ces
Satendra and Kaushik (2014) This sec on is based largely on this document.
41

NATIONAL DISASTER MANAGEMENT AUTHORITY

occurrence of forest ﬁres are: 1) Andhra Pradesh 2) Himachal Pradesh 3) Karnataka 4) Manipur 5)
Madhya Pradesh 6) Nagaland 7) Orissa 8) Rajasthan 9) Telangana 10) U ar Pradesh and 11)
U arakhand.
The moist deciduous forest is the most vulnerable to ﬁre in India. Nearly 15 per cent of this ecosystemis frequently disturbed by ﬁre and 60 per cent is occasionally aﬀected. In the case of wet/semi—
evergreen forests, ﬁre occur somewhat frequently in nine per cent, and occasionally in addi onal 40
per cent. In the North-Eastern region of India, recurrent ﬁres annually aﬀect up to 50 per cent of theforests. The coniferous forests in the Himalayan region are also very ﬁre prone with many wildﬁres
occurring during the winter drought. The propor on of the forest areas prone to forest ﬁre ranges
greatly across diﬀerent states.
The tradi onal view of ﬁre as a destruc ve agent requiring immediate suppression has given way tothe view that ﬁre can and should be used to meet land management goals under speciﬁc ecologicalcondi ons. The impact of the ﬁre is diverse on the forest e cosystem. Besides directly damaging theforest, the ﬁre also adversely aﬀects forest regenera on, microclimate, soil erosion, and wildlife etc.
In most of the cases, the forest ﬁre causes retrogression of forest vegeta on. Forest ﬁre is one of the
major degenera ng factors, which extensively damages the growing stock and its genera ons andmaking area vulnerable to erosion. It has wide-ranging adverse ecological, economic and social
implica ons.

2.3 Regions/Areas Involving Mul ple States Requiring
Special A en on
While sugges ng a holis c approach to DM, the High Power Commi ee 24 discussed three cases thatmerit special considera on on the geo-physical considera ons: a) Himalayan region b) Coastal tracts,
and c) Riverine areas. From the point of view of administra ve and logis cal perspec ves, the North East Region also requires specialized approach. Similarly, the Union Territories, remote Islands andoﬀshore marine assets need to be treated diﬀerently given the speciﬁc administra ve and logis cal
challenges. Therefore, there are six special categories:
1)
2)
3)
4)
5)
6)

Himalayan Region spanning more than one State
Coastal Tracts covering more than one State and UTs
Riverine Areas spread over one or more States
North East Region consis ng of all eight States
Union Territories, Islands and Marine Assets located in one or more State and UTs
Arid and Semi-Arid Regions

2.3.1 Himalayan Region
The Himalayan region of India, characterized by a wide varia on in topography, geology, soil, climate,ﬂora, and fauna, and various ethnic groups with varied socio-cultural tradi ons, is a uniquegeographical en ty of our country (see also the descrip on in sec on 2.2.2.11). Human ac vi es inthis region are the prime cause of environmental degrada on within this re gion. The eﬀects of humanac vi es on environment may be direct or indirect, small or big, slow or fast, predictable or
24

42

The High Powered Commi ee was cons tuted in August 1999 to make recommenda on for ins tu onal
reforms and prepara on of Disaster Management Plans at the Na onal, State and District levels at thebehest of the Prime Minister by the Ministry of Agriculture.

NATIONAL DISASTER MANAGEMENT PLAN

unpredictable depending on the nature, intensity, and frequency of the disturbance to natural
ecosystem.

2.3.2 Coastal Areas
India has a coastline encompassing the mainland and various islands exceeding 7,500 km. Natural
disasters, primarily cyclones usually accompanied by storm surges as well as coastal shoreline changes
aﬀect the coastal tracts, regularly inﬂic ng widespread miseries. The hazards in coastal areas include
1) Geological and shoreline changes 2) Rip currents 3) Cyclones 4) Sea level rise 5) Coastal ﬂooding 6)
Storm surges and ﬂooding 7) Flooding from heavy rainfall events, 8) Saline ingress and 9) Tsunamis.
As per historical records, the risk of tsunami is very low in most parts of the coast. However, somecoastal tracts are likely to experience it, as was the case in 2004. The damages resul ng from suchdisasters have increased signiﬁcantly in recent past. One of the main reasons for this is the growing
popula on pressure in the coastal regions. Along with rising urbaniza on in coastal areas, there isincreasing human habita on in risky stretches of the coast. The risks from global climate change,
especially the higher frequency and intensity of extreme weather events including cyclones and thesea level rise, increase the risk proﬁle of the coastal areas. O en coastal disasters aﬀect more than
one state at a me and the response can be considerably improved by proac ve inter-agency
coopera on among centre and the aﬀected states.

2.3.3 Riverine Regions
The communi es se led in river basins and are predominantly dependent on agriculture. They are
subjected to extremes of rainfall - very high rainfall and very low rainfall. They are therefore mostvulnerable to riverine ﬂooding and food shortages during droughts. These are two of the main
problems i.e. ﬂoods and food insecurity. The major river systems in the country can be broadlyclassiﬁed into two groups viz. Rivers of the Himalayan Region and Rivers of Peninsular India. The
Himalayan Rivers are fed by the mel ng snows and glaciers of the great Himalayan range during springand summer as well as by rains during monsoons. They are often uncertain and capricious in their
behaviour. The peninsular rivers that originate at lower al tudes, ﬂow through more stable areas, andare more predictable in their behaviour. Their ﬂows are characterized by heavy discharges during
monsoons followed by very low discharges during the rain less months. From the point of view of theﬂooding, the riverine regions can be grouped into four as under:
a)
b)
c)
d)

Brahmaputra region drained by Brahmaputra -Ganga system
Ganga region drained by River Ganga
North West drained by Indus and tributaries andCentral India and Deccan region drained by river like Narmada and Tapi

Disaster situa ons involving major rivers aﬀect more than one state at a me and the response canbe considerably improved by proactive inter-agency coopera on among centre and the aﬀectedstates, which may require a river-basin oriented approach. Heavy rainfall and ﬂoods have underscoredthe importance of mul -agency coopera on, need for reliable ﬂood forecas ng, ability for ma kingreasonably accurate quan ta ve rainfall forecast, informa on at the river basin level and modern MIS
for all major dams.

2.3.4 North East Region (NER)
North East Region of India is highly prone to earthquake, ﬂoods and landslide. Some areas are also
vulnerable to forest ﬁre. The NER comprises eight states: 1) Arunachal Pradesh 2) Assam 3) Manipur4) Meghalaya 5) Mizoram 6) Nagaland 7) Sikkim and 8) Tripura. Recognizing the special needs and43

NATIONAL DISASTER MANAGEMENT AUTHORITY

context, the Government of India has categorized eight North Eastern states as Special Category stateswith the Ministry of Development of North Eastern Region (MDONER) paying special a en on to theregion. Barring Assam, the other States are hilly. The seven States of the North-Eastern Region barring
Sikkim forming a compact region is linked to the rest of India through the 26-km long Siliguri Corridor
commonly known as Chicken's Neck. About 98 per cent of the NER's border is bounded by othercountries and the infrastructure deﬁcit in the region, par cularly connec vity in all forms, is acute. For
DM too, the region needs to be treated in an integrated manner considering the special condi ons.

2.3.5 Union Territories, Islands and Marine Assets
The UTs, islands and marine assets pose challenges in disaster governance somewhat diﬀerent fromthat of the states having a SDMA. The nine UTs governed almost directly by the Union Government,
without the administra ve system characteris c of a full -ﬂedged state in the Indian Union are:
1.
2.
3.
4.
5.
6.
7.
8.
9.

Andaman and Nicobar Islands
Chandigarh
Dadra and Nagar Haveli
Daman and Diu
Jammu & Kashmir (J&K)
LadakhLakshadweep
Na onal Capital Territory of Delhi
Puducherry

Out of the UTs, J&K, Puducherry and the Na onal Capital Territory of Delhi, having their own
Legisla ve Assemblies, are like quasi states without the same autonomy as of full-ﬂedged states. The
Central Government is directly responsible for all aspects of governance in the remaining UTs without
own legislatures. The UT Division of the MHA is responsible for all the legisla ve and cons tu onal
ma ers in the UTs.
There are more than 1,200 islands (including uninhabited) within the territorial limits of India of whichsome are very remote from the mainland. In addi on, there are many oﬀshore assets that are involvedin scien ﬁc ac vi es, prospec ng for oil and gas, or linked to oil and gas produc on. While, some ofdisaster situa on in many islands and marine assets can be managed by the respec ve state or UT, ina few cases specialized approach will be needed considering the resources the islands or the oﬀshore
facili es have. They are all at risk from mul ple hazards especially that of sea surges, high velocity
wind, cyclones, earthquakes, and tsunami.

2.3.6 Arid/Semi-Arid and Drought-Prone Regions
A long stretch of land situated to the south of Tropic of Cancer and east of the Western Ghats and the
Cardamom Hills experiences Tropical semi -arid climate. It includes Karnataka, interior and western
Tamil Nadu, western Andhra Pradesh and central Maharashtra. Being situated in the rain -shadow
area, the annual rainfall is low (40 to 75 cm) and drought-prone. Most of western Rajasthan has thearid (desert) climate characterized by scanty rainfall. Most of the drought-prone areas are found inarid and semi-arid regions of the country having low average annual rainfall. Broadly, the droughtaﬀected areas in India can be divided into two tracts 25. The ﬁrst tract comprising the desert and thesemi-arid regions covers an area of 0.6 million sq. km that includes parts of Gujarat, Rajasthan,25

44

Hydrology and Water Resources Informa on System for India , h p://117.252.14.242/rbis/rbis.htm(accessed Sep 20, 2019)

NATIONAL DISASTER MANAGEMENT PLAN

Haryana, Punjab, UP, and MP. The second tract comprises the regions east of the Western Ghats up
to about 300 km from coast falling in the rain shadow area of the Western Ghats. This thickly
populated region experiences periodic droughts. Besides these two tracts, several parts of states suchas TN, Gujarat, UP, Chha sgarh, Jharkhand, West Bengal, and Odisha also experience drought. While
Rajasthan is one of the most drought prone areas, drought is very frequent in large parts of Andhra
Pradesh and Telangana. The agriculture in these regions is mostly rainfed. All these drought -prone,
arid/semi-arid regions with low and uncertain rainfall need long-term water resource management
strategies coupled with be er management of dryland farming to eﬀec vely cope with recurring
droughts. Special a en on on comprehensive monitoring of the hydro -meteorological as well as agroeconomic condi ons is needed along with meaningful forecas ng methods that can help local
authori es in coping with the likelihood of drought.

2.4 Climate Change
2.4.1 Climate and Human-Induced Climate Change
For a suﬃciently large geographic region, the term climate, as deﬁned by the World MeteorologicalOrganiza on, may be understood as the average weather for the region, or more rigorously in termsof the sta s cal proper es (mean and variability) of relevant weather-related variables, with theperiod for averaging being 30 years or more. Climate projec ons relate to the slow evolu on of thecoupled systems of atmosphere, ocean, land, and cryosphere. They are usually expressed inprobabilis c terms (e.g. probability of warmer or we er than average condi ons) usually for months
or seasons. The climate projec ons never forecast speciﬁc weather events. The term “normal” usedin climate are the averages or expected values typical of a region primarily based on analysis ofhistorical data (i.e., long-term data).
The term climate change relates to signiﬁcant devia ons seen in long-term averages of the weather
variables in a region (or the whole Earth). In the absence of human-induced changes to the Earth’s
atmospheric system, such changes are not expected to occur over a short period as has been
observed. In fact, if at all such pa erns as global studies show are to happen through natural climate
variability alone, that could take hundreds or perhaps millions of years. The anthropogenic ac vi essuch as industrializa on, urbaniza on, deforesta on, agriculture, change in land use pa ern and otherchanges cause emission of greenhouse gases which hastens the rate of climate change. The United
Na ons Framework Conven on on Climate Change (UNFCCC) makes a dis nc on between Global
Anthropogenic Climate Change (GACC) a ributable to human ac vi es altering the atmosphericcomposi on, and climate variability a ributable to natural causes. The UNFCCC in its Ar cle 1, deﬁnes
GACC as26:‘a change of climate which is a ributed direct ly or indirectly to human ac vity that alters thecomposi on of the global atmosphere and which is in addi on to natural climate variability
observed over comparable me periods’.
Anthropogenic drivers for climate change are now widely recognised among the scien ﬁc community
as playing the major role in magnifying the disaster risks globally. The knowledge and understanding
on climate change hold the key to the unprecedented changes in the disaster risk scenarios facing theworld today. A changing climate leads to changes in the frequency, intensity, spa al extent, dura on,
and ming of extreme weather and climate events, and can result in unprecedented extreme weather
26

United Na ons Framework Conven on on Climate Change h p://unfccc.int/cop4/conv/ conv.html(accessed Sep 20, 2019)45

NATIONAL DISASTER MANAGEMENT AUTHORITY

and climate events. Extreme and non-extreme weather or climate events aﬀect vu lnerability to future
extreme events by modifying resilience, coping capacity, and adap ve capacity.
The year 2016 made history, with a record global temperature, excep onally low sea ice, andunabated sea level rise and ocean heat, according to the World Meteorological Organiza on (WMO).
Extreme weather and climate condi ons have con nued into 2017. WMO issued its annual statementon the State of the Global Climate ahead of World Meteorological Day on 23 March which stated thatthe globally averaged sea surface temperatures were the warmest on record, global sea levels
con nued to rise, and Arc c sea-ice extent was well below average for most of the year. Because ofclimate change, the occurrence and impact of extreme events has risen. ‘Once in a genera on’
heatwaves and ﬂooding are becoming more regular. Sea level rise has increased exposure to storm
surges associated with tropical cyclones.

2.4.2 IPCC Fi h Assessment Report
According to IPCC's Fi h Assessment Report27 (AR5) based on many independent scien ﬁc analyses,
new evidence, theore cal studies and computer simula ons, there is greater certainty that the buildup of Greenhouse Gas in Earth’s atmosphere is changing the world’s climate and crea ng increasingly
extreme and unpredictable weather. Because of these changes, the probability of extreme weather
events is increasing. According to AR5, the computed linear trend of the globally averaged combined
land and ocean surface temperature data show 0.85°C [0.65°C to 1.06°C]28 warming over the period
1880 to 2012, when mul ple independently produced datasets exist. In the period 1901-2012, climate
has shown a warming of 0.89°C [0.69°C to 1.08°C], which is mainly a ributed to anthropogenic
ac vi es (IPCC 2013). Each of the last three decades has been successively warmer at the Earth’s
surface than any preceding decade since 1850. In the case of India, increasing temperature trends ofthe order of 0.60°C during last 112 years (IMD 2012, Rathore et al. 2013) and increase in heavy rainfall
events and decrease in low and medium rainfall events (Goswami et al. 2006) have been observed.
A world with 4°C rise in temperature would be one of unprecedented heat waves, severe drought,
and major ﬂoods in many regions, with serious impacts on ecosystems and associated services. Deltaic
regions and coastal ci es are par cularly exposed to compounding climate risks resul ng from theinterac ng eﬀects of increased temperature, growing risk s of river ﬂooding, rising sea-level andincreasingly intense tropical cyclones, posing a high risk to areas with the largest shares of poor
popula ons. As per India’s Na onal Ac on Plan on Climate Change, parts of Rajasthan, Gujarat,
Madhya Pradesh, Maharashtra, Northern Karnataka, Northern Andhra Pradesh, and Bihar are likely to
be more vulnerable in mes of extreme events.
As a component of the ﬁ h assessment cycle, the IPCC Special Report (SREX) on Managing the Risks
of Extreme Events to Advance Climate Change Adapta on (IPCC 2012) provides projec ons onchanging weather and climate extremes. Severe risks, such as ﬂooding, and drought may increasesigniﬁcantly due to small increments in annual average temperature. With extremes of rainfall anddrought projected to increase with warming, these risks are expected to be much higher in a 4°C world
as compared to the 2°C world. In a 2°C world, the river basins dominated by a monsoon regime, suchas the Ganges and Nile, are par cularly vulnerable to changes in the seasonality of runoﬀ, which may
have large and adverse eﬀects on water availability (IPCC 2012). The AR5 states that changes in casesof extreme weather and climate events have been observed since about 1950. The data indicates that
globally, while the number of warm days and nights has increased, that of cold days and nights has
decreased. Besides, the frequency of heat waves appears to have increased in large parts of Europe,
27
28

46

IPCC (2013)
The es mated values have 90 per cent likelihood of being within the uncertainty intervals given in square
brackets, which is not always symmetric about the reported best es mate.

NATIONAL DISASTER MANAGEMENT PLAN

Asia and Australia. There are more land regions where the number of heavy precipita on events has
increased than where it has decreased.
The climate change ac ons and DRR share common goals, with both aiming to reduce the vulnerabilityof communi es. The global climate change alters the frequencies, geographic distribu on andintensi es of almost all the hydro-meteorological hazards such as ﬂoods, cyclones, droughts, cold
wave, and heat wave in unpredictable ways aggrava ng the exis ng uncertain es associate d withthese hazards. While it is not possible to establish direct one to one func onal rela onship between
speciﬁc extreme weather events and any of the speciﬁc climate change parameters expressed in
global terms (devia ons long-term global averages), it is certain that the global climate change does
increase disaster risk signiﬁcantly, although not amenable to precise forecasts. That emphasises theneed for more comprehensive approach to DRR.

2.4.3 India and Climate Change
Over a century of observa ons on atmospheric parameters (like temperature and precipita on), andrela vely recent observa ons on cyclones and sea-level show signiﬁcant climate anomalies over the
Indian region. These changes are likely to increase the frequency of extreme weather events andworsen the hydro-meteorological hazards. Apart from the observed trends, signiﬁcant clima canomalies are also projected over Indian region in terms of temperature, precipita on, storms,
cyclones, sea-level rise and coastal inunda on. An all-round warming over the India sub-con nent
associated with increasing greenhouse gas scenario. The annual mean surface air temperature rise is
expected to range between 1.7 – 2 °C and the seasons may get warmer by around 2 oC towards 2030’s.
The variability of seasonal mean temperature may be more in winter months. The warming in nighttemperatures is expected to be more over south peninsula, central and northern India, whereas thatof day me warming is expected to be more over central and northern India. This sec on is based on
the several oﬃcial studies and reports, notably:

a)
b)
c)
d)

India's submission of NDC to the UNFCCC in accordance with Ar cle 4, paragraph 12 of theParis Agreement, 2015²⁹
India's Progress in Comba ng Climate Change - Brieﬁng Paper for UNFCCC COP 20 Lima,PERU
IMD Report of 2013 (ESSO/IMD/EMRC/02/2013) - State level climate change trends in India.
(Rathore et al. 2013)
INCCA Report #2 – Climate Change and India: A 4x4 Assessment - A Sectoral and Regional
Analysis for 2030s

A World Bank report (2012) – ‘Turn Down the Heat’ – warns that parts of South Asia have become
drier since the 1970s with an increase in the number of droughts. Droughts are expected to be more
frequent in some areas, especially in north-western India, Jharkhand, Orissa and Chha sgarh. Crop
yields are expected to fall signiﬁcantly because of extreme heat by the 2040s. One of the notablechanges in the rainfall pa ern is the increase in the frequency of high intensity rainfall events. It has
been noted that most Himalayan glaciers - where a substan al part of the moisture is supplied by thesummer monsoon - have been retrea ng over the past century. These changes can have
29Interim NDC Registry - h p://www4.unfccc.int/ndcregistry/Pages/Party.aspx?party=IND (accessed Sep 20,
2019)
47

NATIONAL DISASTER MANAGEMENT AUTHORITY

consequences on the ﬂows of the Indus, Ganges, and Brahmaputra rivers, which in turn could
signiﬁcantly impact irriga on.
The sub-con nent is expected to see rela vely larger rise in sea levels than higher la tudes and India
being close to the equator this has ramiﬁca ons for the coastal regions of India. Sea-level rise andstorm surges would lead to saltwater intrusion in the coastal areas, impac ng agriculture, degrading
groundwater quality, contamina ng drinking water, and possibly causing a rise in diarrhoea cases andcholera outbreaks, as the cholera bacterium survives longer in saline water. Seasonal water scarcity,rising temperatures, and intrusion of sea water would threaten crop yields, jeopardizing the country's
food security.

2.4.4 Temperature
Indian annual mean temperature showed signiﬁcant warming trend of 0.51°C per 100 years, during
the period 1901-2007 (Kothawale et al., 2010). Accelerated warming has been observed in the recent
period 1971-2007, mainly due to intense warming in the recent decade 1998-2007. This warming is
mainly contributed by the winter and post-monsoon seasons, which have increased by 0.80°C and
0.82°C in the last hundred years respec vely. The pre-monsoon and monsoon temperatures also
indicate a warming trend. Mean temperature increased by about 0.2°C per decade (i.e. 10 years) forthe period 1971-2007, with a much steeper increase in minimum temperature than maximum
temperature. In the most recent decade, maximum temperature was signiﬁcantly higher comparedto the long-term (1901-2007) mean, with a stagnated trend during this period, whereas minimum
temperature showed an increasing trend, almost equal to that observed during 1971-2007.
The all-India mean annual maximum and minimum temperatures increased by 0.71°C and 0.27°C per
hundred years (1901-2007) respec vely. Addi onally, warmer nights have increased, and colder
nights have decreased almost over the en re country. The number of cold days and nights has been
decreasing and that of hot days and nights have been increasing almost over all the regions of thecountry. Signiﬁcant inﬂuence of El Niño Southern Oscilla on events on temperature anomalies
observed across India.
State wise averaged annual mean maximum temperature me series has shown increasing trends
over many States/UTs of India except Bihar, Chha sgarh, Delhi, Haryana, J &K, Ladakh, Meghalaya,
Punjab, Tripura and UP (Rathore et al, 2013). The increasing trends were signiﬁcant over Andaman
and Nicobar, AP, Arunachal Pradesh, Assam, Goa, Gujarat, HP, Jharkhand, Karnataka, Kerala,
Lakshadweep, MP, Maharashtra, Manipur, Mizoram, Orissa, Rajasthan, Sikkim, T N and U arakhand.

2.4.5 Impact on Indian Monsoon
Extreme rainfall amounts are increasing at many places in India. Majority of the loca ons havereported highest 24-hour rainfall during 1961-1980 with an alarming rise in their intensity during 19802009. Many sta ons have experienced 40-370% rise in their rainfall intensi es. All-India monsoon
rainfall series based on 1871-2009 indicates that the mean rainfall is 848 mm with standard devia onof 83 mm (MOEF CC 2010). The Indian monsoon shows well deﬁned epochal variability with each epochof approximately 3 decades. Though it does not show any signiﬁcant trend, however, when averaged
over this period, a slight nega ve trend i.e. -0.4mm/year is seen. The all-India, northwest, west coastand peninsular India monsoon rainfall shows a slightly higher nega ve trend, though not signiﬁcant,than for the total period. However, pockets of increasing/ decreasing trends in 36 meteorological sub divisions over India are seen (MOEFCC 2010).

48

NATIONAL DISASTER MANAGEMENT PLAN

For the Indian Summer Monsoon Rainfall (ISMR), i.e., the monsoon season (June to September),
Rajeevan et al. (2008) showed that extreme rain events have an increasing trend between 1901 and2005, but the trend is much stronger a er 1950. Sen Roy (2009) inves gated changes in extreme
hourly rainfall in India, and found widespread increases in heavy precipita on events across India,
mostly in the high-eleva on regions of the north-western Himalaya as well as along the foothills of
the Himalaya extending south into the Indo-Ganges basin, and par cularly during ISMR between 1980
and 2002. Heavy precipita on increased in India (Rajeevan et al., 2008) especially during the monsoon
seasons (Sen Roy, 2009; Pa anaik and Rajeevan, 2010).
The state/area-speciﬁc average annual rainfall show increasing trend over AP, Bihar, Gujarat, Haryana,
J&K, Ladakh, Jharkhand, Lakshadweep, Manipur, Meghalaya, Mizoram, Orissa, Rajasthan, TN, Tripura
and West Bengal during 1951-2010 (Rathore et al, 2013). However, annual rainfall has decreased overAndaman and Nicobar, Arunachal Pradesh, Assam, Chha sgarh, Delhi, Goa, H P, Karnataka, Kerala,
MP, Maharashtra, Nagaland, Punjab, Sikkim and UP. The highest increase and decrease in annual
rainfall were observed over Meghalaya (+14.68 mm/year) and Andaman and Nicobar (-7.77 mm/year)
respec vely. However, annual rainfall trends have been signiﬁcantly increasing over West Bengal(+3.63 mm/year) and signiﬁcantly decreasing over Andaman and Nicobar ( - 7.77 mm/year) andU ar Pradesh (-4.42 mm/year).

2.4.6 Storm and Cyclones
The storm frequency has decreased despite higher sea surface temperature in the past century. 1961
onwards, the cyclone frequency shows a signiﬁcant decreasing trend for all the months and seasons(except post-monsoon period) over the Indian region (MOEFCC 2010). Cyclone intensity however isseen to be increasing during this period which may have signiﬁcant implica ons. Cyclonic disturbances
over Arabian Sea may be less in future as compared to the present simula ons. However, such systems
are expected to be more intense in the future under global warming. The frequency of cyclones during
the post-monsoon season in future (2071-2100) could be much higher than that during the baseline
period (1961-1990).

2.4.7 Sea-Level Rise
Global average sea-level rose at an average rate of about 1.8 and 3.1 mm/year over 1961 -2003 and1993-2003, respec vely (MOEFCC 2010). Between 1993 and 2003, the sea level rose by 0.33 m withan uncertainty of ±1 mm/year. Over the Indian region sea -level rise is less understood. The mean sealevel rise along the Indian coasts (on an average) based on observa ons is es mated to be about 1.3
mm/year. Global average sea level rise at the end of the 21st century (2090 –2099) for diﬀerent climate
scenarios is expected to be 0.18 - 0.59 m which may be used as ﬁrst approxima on of seal level risealong the Indian coast for nest few decades and towards the end of the century.

2.4.8 Coastal Inunda on due to Sea Level Rise
Coastal inunda on due to sea level rise is a concern for several loca ons along the Indian coasts. The
east coast of India is more vulnerable than the west coast, because the former is low -lying and more
prone to the occurrence of cyclones than the la er (MOEFCC 2010). The central west coast of India isleast vulnerable, by virtue of a steep onshore topography and low occurrence of cyclones. Coastal
areas projected to be highly vulnerable to inunda on due to sea -level rise include the Nagapa nam
and Paradip areas along the east coast and the Kochi areas along the west coast.

49

NATIONAL DISASTER MANAGEMENT AUTHORITY

2.4.9 Integra ng DRR and Climate Change Adapta on (CCA)DRR focusing on adapta on and CCA focusing on risk reduc on is per nent for eﬀec ve andsustainable DRR as well as CCA. The paradigm shi in DRR towards disaster preparedne ss andmi ga on requires futuris c planning. The SFDRR targets on reducing disaster “mortality”, “aﬀected
people”, “economic loss” and “damage”, and increasing availability and access to ‘mul -hazard early
warning systems” and “disaster risk informa on”, also requires futuris c DRR. However, disastermanagement in India has been majorly based on observa onal data that has limited scope for
futuris c DRR. Therefore, it is necessary to have reliable projec ons on disaster risks considering theclimate change impacts. The broader goal of developing synergy between Sustainable Development
Goals, Paris Agreement and SFDRR can also be achieved by having futuris c DRR and CCA planning.
The DRR and CCA integra on need that is being recognized at all forum and scales across the country
is per nent to such planning. It becomes impera ve to deﬁne concrete ways of making DRR and CCA
futuris c. Addi onally, such integra on will enhance eﬀec ve resource u liza on through combined
eﬀorts of diﬀerent stakeholders in the areas of DRR and CCA.

2.5 Livestock – DRR Challenges
2.5.1 Background
In India, livestock are an integral part of the household economy, and contribute signiﬁcantly to family
subsistence, livelihood and well-being. Livestock produc on and agriculture are intrinsically linked andmutually dependent to a degree, and both are crucial for overall food security. It is an important subsector of the agriculture of Indian economy. It forms an important livelihood ac vity for most of the
farmers, suppor ng agriculture in the form of cri cal inputs, contribu ng to the health and nutri onof the household, supplemen ng incomes, oﬀering employment opportuni es, and ﬁnally being adependable “bank on hooves” in mes of need. It acts as a supplementary and complementary
enterprise. Livestock produc on and agriculture are intrinsically linked, each being dependent on theother, and both crucial for overall food security. According to es mates of the Central Sta s cs Oﬃce
(CSO), the value of output livestock sector at current prices was about Rs 5.92 lakh-crore (5.92 trillion)
during 2015-16 which is about 28.5% of the value of output from agricultural and allied sector or nearly
29% at constant prices.
The total livestock popula on consis ng of ca le, buﬀalo, sheep, goat, pig, horses & ponies, mules,
donkeys, camels, mithun30 and yak in the country is 512.05 million as per the 19th livestock census of201231. The total bovine popula on (ca le, buﬀalo, mithun and yak) is nearly 300 million of which themilch animals (cows and buﬀaloes) is 118.6 million. The total sheep was 65.1 million and goats 135.2
million. Besides, there are 0.63 million horses and ponies, 0.2 million mules, 0.32 million donkeys, 0.4
million camels, 10.3 million pigs, 11.7 million dogs and over 729 million poultry. The provisional ﬁgureof disaster loss in 2017-18 (by Dec 31, 2017) was 46,488 ca le 32. Given the very large numbers oflivestock, the DRR for livestock is a huge challenge, although the losses seem very low at the na onal
level.

30

Also called gayal and mountain ca le; Scien ﬁc name: Bos frontalis
h p://dahd.nic.in/documents/sta s cs/livestock -census (accessed Sep 20, 2019); 20th Livestock Census is inprogress
32
MHA Annual Report 2017-18
3150

NATIONAL DISASTER MANAGEMENT PLAN

2.5.2 Global Approaches in Livestock Emergencies
When animals are lost, injured or debilitated by a disaster, and/or the resources and services that
support them are disrupted, there is a serious impact on communi es. In emergency situa ons,
speciﬁc, livestock-targeted interven ons are required to help households survive the immediate crisisand to support communi es in rebuilding their livelihoods. Livestock interven ons typically coverprovision of animal health services, emergency feeding and water supplies, shelter provision,
destocking and restocking. The type of interven on will depend on the nature of the emergency, thelocal context and the phase of the emergency (i.e. ongoing, immediate a ermath, recovery or
rehabilita on). Based on good prac ces from various parts of the world and to ensure eﬀec ve DRR
in the livestock sector, the Food and Agriculture Organisa on (FAO), which is part of the United
Na ons, supported the development of ‘Livestock Emergency Guidelines and Standards’33 (LEGS). The
FAO also developed a manual 34 – ‘Livestock-Related Interven ons During Emergencies – The How-ToDo-It Manual’ – that complements LEGS. It provides speciﬁc and technical “How-to-do-it” guidance
for the most common livestock emergency interven ons.
These two documents address the important global need for per nent guidance on livestock
emergencies. These are extensive documents that deal with all aspects of diverse kinds of livestock
emergencies. Overall approach presented in these documents is presented here.
The guidelines recognise that livestock constitute a crucial livelihood asset – many of whom are poorand vulnerable to both natural and human-induced disasters – and that livestock support is an
important component of emergency aid programmes. This guidelines and standards help in designing,
implemen ng, and evalua ng livestock interven ons in emergencies. The approach supports thesaving of both lives and livelihoods through two key strategies:••

Iden fying the most appropriate livestock interven ons during emergencies
Providing Standards, Key ac ons, and Guidance notes for these interven ons based on goodprac ce

The approach places emphasis on three livelihoods objec ves:a) To provide rapid assistanceb) To protect livestock assets, andc) To rebuild the livestock assets of disaster -aﬀected communi es

2.5.3 Key Interven ons
In most disasters and emergencies aﬀec ng livestock, the following set of interven ons are applicable,
depending on the situa on:
•

•
•
•
33
34

Destocking is a measure resorted to par cularly in case of creeping disasters like droughts,
usually involve the sale of livestock in an cipa on of or during emergency well before theanimals are aﬀected by the disaster, which helps improve liquidity needed to support
livelihoods all through the crisis.
Animal rescue involves making all possible eﬀorts to save animals and treat the injured,
where possible
Veterinary support to prevent sickness and death and help maintain the value of thesurviving animals
Provision of feed and water for the animals in the aﬀected area, to the extent possible

LEGS (2014) Livestock Emergency Guidelines and Standards
FAO (2016) Livestock-Related Interven ons During Emergencies – The How-To-Do-It Manual51

NATIONAL DISASTER MANAGEMENT AUTHORITY

•
•
•
•

Livestock shelters – may be required in many situa ons for the protection from extreme
weather, preda on, and/or the , depending on the local condi ons
Addi onal sanita on and other measures to prevent epidemics
Safe removal and disposal of carcasses of animals killed in the disaster
Provision of livestock or ﬁnancial support for restocking to households to replace, subject tocondi ons, usually par ally, animals lost in a disaster with the objec ve of helping to rebuild
livelihoods

In addi on, there is a ming factor to consider. Some interven ons are more appropriate at certain
stages in the disaster cycle than others. For example, a restocking programme would logically be in
the recovery, rather than the alert phase of a disaster. It is also likely that a combina on of diﬀerent
interven ons over me will be a more eﬀec ve way to safeguard the livelihoods of the beneﬁciaries.

2.5.4 Risk Management and Insurance
Recognising the need for risk management, the Government of India had ini ated a centrally
sponsored scheme for livestock insurance which was implemented ini ally on pilot basis during thetenth ﬁve-year plan (2002-07). From 2008-09 onwards, the scheme became a regular scheme.
Na onal Livestock Mission (NLM) has been launched during Twel h Five Year Plan (2012-17). The goalof NLM is sustainable livestock and poultry for nutri onal security and economic prosperity. One ofits sub-missions is on ‘Risk Management and Insurance’ (NLM-RMI).
The objec ve of the NLM-RMI is to address the challenges of managing uncertain es and risks bypromo ng protec on mechanisms against likely loss of animals through livestock insurance schemes.
The NLM-RMI is applicable across the country and the implementa on began from May 2014 cov ering
all animals. The beneﬁt of subsidy has been enhanced and is restricted to ﬁve ca le unit per
beneﬁciary per household, in case of goat, sheep, pigs and rabbit one ca le unit is equal to ten animals
instead of two milch animals per household earlier. By the middle of 2017, the insurance scheme
covers over 3.6 million animals35.
The livestock insurance schemes are at a very early phase and as they become adopted by more
farmers, the schemes will have to introduce diﬀerent risk cover products addressing diﬀerent typesof risks in key geographies. In addi on to the conven onal insurance products, indexed op ons will
have to considered, in which pay-out calculated will be according to what is usually an independently
veriﬁed proxy (index), rather than the actual damage to speciﬁc livestock holdings.

2.6 Environment and Wildlife Conserva on
2.6.1 BackgroundSound environmental management is proven to be integral to disaster risk reduc on. Healthy
ecosystems not only play an important role in suppor ng recovery and reconstruc on a er a disaster,
but in reducing future disaster risk. Yet the same me, disasters also pose signiﬁcant risks to theecosystems and could pose threat to the popula ons of endangered species, disrupt wildlife
conserva on or ecologically important habitats. The agreements on Sendai Framework, SDG and the
COP21 Climate Change bring disaster risk management and environmental professionals closer. It is
important to also pay some a en on to environm ent, ecologically important areas and wildlife
35

52

Press Release, MAFW, 13 -Jul-2017. h p://pib.nic.in/newsite/PrintRelease.aspx?relid=167397 (accessed on
15-Dec-2017)

NATIONAL DISASTER MANAGEMENT PLAN

conserva on areas/ protected areas even though the approach to DRR will have to quite diﬀerent.
The Sendai framework states that strengthening of environmental resilience is one of the strategies
required for preven ng the crea on of risks 36 and notes the importance of preserving ecosystem
func ons that help to reduce risks while promo ng the mainstreaming of DRR 37.
Many conceptual frameworks place emphasis on the need for incorpora ng both disaster ri sk
reduc on and securing ecosystem func ons in development planning. However, DRR frameworks for
integra ng disaster risk management and addressing environmental change synergis cally are only
beginning to emerge and have not yet been widely adopted. The UNISDR Working Group on
Environment and Disaster Risk Reduc on, for instance, is developing an analy cal framework that
explores the interlinkages between environmental change and disaster risk based on ﬁve int er-related
asser ons:
a)
b)
c)
d)

Natural hazards are physical processes that can be directly aﬀected by social processes
Healthy ecosystems o en provide natural defenses
Degraded ecosystems reduce community resilience
Although the environment itself is o en well-adapted to natural hazards (with mescales forrecovery varying signiﬁcantly), disasters can lead to secondary environmental impactse) Environmental degrada on itself magniﬁes risk and becomes a hazard
Protected areas, ecosystems restora on and natural resource management that do not incorporate
disaster risk reduc on objec ves represent a missed opportunity. Failures to iden fy the mutual
beneﬁts of environmental management, risk reduc on and climate change adapta on are lost
opportuni es to protect lives and promote human well-being. Two key areas of environmental
management for disaster risk reduc on are:••Environmental Monitoring and Assessment
Protected Area Management and Ecosystem Rehabilita on

2.6.2 Environmental Monitoring and Assessment
Environmental monitoring and assessment play an important role in genera ng relevant informa onthat assists environmental and disaster managers in iden fying risks, vulnerabili es and opportuni es
to promote community resilience. Monitoring and observing environmental factors that signal theonset of a hazard are fundamental to early warning systems. Environmental monitoring systems also
track trends in environmental degrada on, such as deforesta on, that underlie a local area’s exposure
to risk. Mapping hazard risk and exposure is another func on of environmental monitoring. In addi on
to iden fying hazard risk (ﬂood, landslide, seismic ac vity, etc.), some environmental authori es also
map environmentally sensi ve areas. Environmental assessments produce targeted environmental
analyses by repor ng on current and an cipated future environmental condi ons and iden fying
drivers of environmental change. These include post-disaster assessments that iden fy environmental
damages and needs, as well as strategic environmental assessments that determine poten al
environmental consequences of development plans and policies.

2.6.3 Protected Areas, Ecosystem Rehabilita on
Environmental condi ons not only modify the frequency of hazard events, but ecosystems also serve
as natural barriers that can moderate the eﬀects of a hazard and protect communi es. According to
36
37

Sendai Framework for DRR, Sec on 27(b)Sendai Framework for DRR, Sec on 30(g)53NATIONAL DISASTER MANAGEMENT AUTHORITY

the Millennium Ecosystem Assessment (MA 2005), an ecosystem is a dynamic complex of plant,
animal, and microorganism communi es and the non-living environment interac ng as a func onal
unit, which could range from rela vely undisturbed areas such as natural forests, landscapes with
mixed land-use pa erns, to areas intensively managed by humans, such as agricultural land and urban
areas. Ecosystems are socio-ecological systems and managing ecosystem services is highly relevant
for the purposes of disaster risk reduc on. Biodiversity including rare wildlife and their habitats areincluded in these. Global climate change awareness has spurred a new drive to be er manage
protected areas and reduce deforesta on. Protec ng and preserving the natural posi on andtrajectory of wetlands and other water resources has received increasing support, given the risks fromtheir altera on, elimina on or loss for developmental purposes.
Ecosystem rehabilita on or restora on entails a wide array of ac vi es, including post -disaster cleanup, e.g. a er an oil spill, as well as replan ng of forests or mangroves. Restoring ecosystems following
natural and human-made disasters can work to reduce the underlying risk factors and mi gate futuredisaster impacts. Decisions at the ﬁeld level require detailed knowledge of local environmental
condi ons (e.g. plan ng regimes, species choices) and compe ng community needs. There are several
examples of protected areas management, ecosystem restora on and natural resource management
showing how decisions need to balance livelihood priori es with environmental sustainability
concerns. Pro-ac vely managing natural areas can ensure protec on of the environment and reduce
underlying risk factors for disaster by maintaining the resilience inherent in ecosystems. Community
par cipa on in forest and ﬁre management has also played an important role in reducing risk ofdevasta ng wildﬁres. Fuel reduc on employing both the use of mechanical means as well as
controlled (prescribed) ﬁre contributes to a reduc on of wildﬁre hazards and the risk of high -severity
wildﬁres. Appropriate management of coastal forests protect local communi es from coastal hazards
while helping to conserve biodiversity.

2.6.4 India and Biodiversity Conserva on
From a global biodiversity perspec ve and climate change risks, India is one among the seventeen
recognized mega-diverse38 countries of the world, harbouring nearly 8% of the recorded species of
the world and represen ng four of the thirty-four globally iden ﬁed biodiversity hotspots. It has
around 8% of all mammals, 13% of birds, 8% of rep les, 6% of amphibians and 6% of all plant species
popula on39. Most of them are found in tropical rain forest, Western Ghats and forests of theHimalaya. India is also a vast repository of tradi onal knowledge associated with biological resources.
So far, over 91,20 0 species of animals and 45,500 species of plants have been documented in the ten
biogeographic regions of the country. Inventories of ﬂoral and faunal diversi es are being
progressively updated with several new discoveries through the conduct of con nu ous surveys andexplora on.
Along with species richness, India also possesses high rates of endemism. In terms of endemic
vertebrate groups, India’s global ranking is tenth in birds, with 69 species; ﬁ h in rep les with 156
species; and seventh in amphibians with 110 species. Endemic-rich Indian fauna is manifested mostprominently in Amphibia (61.2%) and Rep lia (47%). India is also recognized as one of the eight
Vavilovian centers of origin and diversity of crop plants, having more than 300 wild an cestors and close
rela ves of cul vated plants, which are s ll evolving under natural condi ons . Unfortunately, many38

The term megadiverse country refers to any one of a group of na ons that harbour most of Earth's species
and high numbers of endemic species. Conserva on Interna onal iden ﬁed 17 megadiverse countries in
1998. Many of them are located wholly or par ally in tropical or subtropical regions
39
Most of the data is from India’s country proﬁle posted on the oﬃcial website of the interna onal
Conven on on Biodiversity (CBD). h ps://www.cbd.int/countries/proﬁle/default.shtml?country=in#facts(accessed Sep 20, 2019)54

NATIONAL DISASTER MANAGEMENT PLAN

species are facing the threat of ex nc on due to mul ple impacts of habitat degrada on,
development, climate change and disasters.
The protected area network in India has been used as a tool to manage natural resources forbiodiversity conserva on and for the well-being of resource-dependent popula ons. So far, India hasestablished a network of 764 Protected Areas (PAs), extending over 1.6 lakh sq.km comprising 103
Na onal Parks, 543 Wildlife Sanctuaries, 26 Community Reserves and 66 Conserva on Reserves 40(Table 2-3). In addi on to the PA network, the managed forests under the State Forest Departments(SFDs) are also contribu ng towards wildlife conserva on. India has over 20% of the total geographicalarea under eﬀec ve wildlife conserva on . Protected Areas (PAs) are clearly deﬁned geographicalspaces, recognized, dedicated and managed through legal and other eﬀec ve mea ns to achieve thelong-term conserva on of nature with associated ecosystem services and cultural values.

Table 2-3: Status of the PA Network in India (July 2017)
Protected Area

Na onal Parks
Wildlife Sanctuaries
Conserva on Reserves
Community Reserves
Total Protected Areas

NumberTotal Area (sq.km)

103
543
73
45
764

40,500118,9172,547
60
162,024

Source: ENVIS Centre on Wildlife & Protected Areas, Wildlife Ins tute of India, MOEFCC

The Na onal Forest Policy states that for the conserva on of total biological diversity, the network ofna onal parks, sanctuaries, biosphere reserves and other protected areas should be strengthened andextended adequately. The protected areas include 50 Tiger Reserves and 32 Elephant Reserves. In
addi on, there are seven Natural World Heritage Sites within UNESCO’s framework, 107 Important
Coastal and Marine Biodiversity Areas (ICMBA) and 467 Important Bird Areas (IBA). Floods, windhazards, forest ﬁres, coastal hazards and improperly planned development projects may pose serious
threat to the wildlife in the PAs and the survival of many species on the verge of ex nc on depends
on proper management of the PAs.

2.6.5 DRR and Climate Change in Wildlife Ac on Plan
The Third Na onal Wildlife Ac on Plan (2017-2031) is based on the premise that essen al ecologicalprocesses that are governed, supported or strongly moderated by ecosystems, are essen al for foodproduc on, health and other aspects of human survival and sustainable development. And
maintenance of these ecosystems which can be termed as ‘Life Support Systems’ is vital for all
socie es regardless of their stage of development. It also emphasizes on other two aspects of living
resource conserva on viz. preserva on of gene c diversity and sustainable u liza on of species andecosystems which has direct bearing on our scien ﬁc advancements and support to millions of ruralcommuni es.
The Third Wildlife Ac on Plan (WAP-3) has adopted a landscape approach in conserva on of all
uncul vated ﬂora and undomes cated fauna that has ecological value to mankind irrespec ve of
where they occur. It accords special emphasis to rehabilita on of threatened species of wildlife whileconserving their habitats which include inland aqua c, coastal and marine eco-systems. It also takes
note of concerns rela ng to climate change on wildlife by integra ng it into wildlife management
Planning. It underlines the fact that the na onal development policies need to take serious note of40

Source: ENVIS Centre on Wildlife & Protected Areas, Wildlife Ins tute of India, MOEFCC
http://www.wiienvis.nic.in/Database/Protected_Area_854.aspx (accessed Sep 20, 2019)55

NATIONAL DISASTER MANAGEMENT AUTHORITY

adverse ecological consequences of reduc on and degrada on of wilderness areas from the pressuresof popula on, commercializa on and development projects. Accordingly, the plan draws a en on to
the alarming erosion of India’s natural heritage comprising of rivers, forests, grasslands, mountains,
wetlands, coastal and marine habitats arid lands and deserts.
The WAP-3 calls for the integration of various site-speciﬁc strategies climate change adapta on (CCA),
climate change mi ga on (CCM) and DRR. It stresses the need to have plans for eﬀec ve coordina on
with the authori es/agencies responsible for DRR at the appropriate levels – from the na onal down
to Panchayat Raj Ins tu ons (District, Block and Village levels). It emphasizes that plans for
coordina on with DM authori es/agencies at the diﬀerent levels should be in readiness for
implementa on as situa ons that need such response are likely to develop. The WAP notes thateﬀec ve plans for DRR and CCA are necessary for biodiversity conserva on. Ecosystems provide
numerous beneﬁts and services which are underpinned by biodiversity. Climate change has increased
vulnerability and reduced resilience of ecosystems globally with poten ally far reaching impacts onhuman well-being. There is, therefore, a need to foster a greater understanding of the links between
biodiversity conserva on, ecosystem services, climate change and other disasters risks to enhanceleadership at all levels. The following measures have been suggested in the WAP-3:
•
•
•
•
•
•
•
•
•

•

The Environmental Impact Assessment (EIA) process needs to integrate the issues
concerning CCA and DRR
Improving collec on and colla on of data on hazards
Sound integra on of DRR, relief, rehabilita on with CCA
Integra ng CCA and DRR with shared responsibility into all PA plans taking account PAspeciﬁc data
Integrate CCA and DRR with shared responsibility in all sectors into the ac on plans
Involving local communi es respec ng their knowledge and capaci es
Suitably integrate CCA and DRR into management plans for Coastal and Marine Protected
Areas (CMPA)
Develop synergy between CCA and DRR in the state coastal zone management plan (SCZMP)
prepared under CRZ provisions, with par cipa on of all stakeholders
Develop knowledge base and exper se in addressing wildlife conserva on challenges in thecontext of climate change and projected increase in extreme weather events as well as
natural disasters
Upgrade syllabi of various wildlife degree and training programmes (diploma, undergraduate
and post-graduate) to cover conserva on of the full range of biodiversity.

2.7 Disaster Management for Cultural Heritage Sites, theirPrecincts and Museums
Cultural heritage has only recently been recognised as a key aspect within overall frameworks of
disaster risk reduc on. A general lack of awareness and a lack of priori sa on of heritage is one of the
key challenges in this area. The relevant DM guidelines published by NDMA are, a) cultural heritage
sites and precincts and b) museums. Museums are repositories of diverse heritage, both natural aswell as cultural, and as ins tu ons they make signiﬁcant contribu ons to the socio -culturaldevelopment of a community. Museums, through the objects and collec ons they house and display,contribute to regional, state and na onal iden es. Over centuries, the scope and nature of museums
expanded from presenta on of private collec ons of artefacts and oddi es to ins tu ons that
promoted learning through objects collected and presented with a meaningful narra ve.

56

NATIONAL DISASTER MANAGEMENT PLAN

The apex body for the conserva on and protec on of cultural heritage is the Ministry of Culture(MOCU), which acts through the Archaeological Survey of India. Several na onal legisla ons apply tocultural heritage such as:••••

Ancient Monuments and Archaeological Sites and Remains (AMASR) ACT 2010, 1958
Ancient Monuments and Archaeological Sites and Remains Rules, 1959
An qui es and Art Treasures Act, 1972 and The An qui es and Art Treasures Rules, 1973
State legisla ons applicable to State Archaeology Monuments and Sites.

With respect to cultural heritage sites and precincts, a localised hazard may also cause an emergency
that is beyond the iden ﬁed coping capacity. Disaster may severely impact the emergency
infrastructure and response, which may aﬀect the response for protec ng the heritage site or
precinct. Therefore, building capacity within the site or precinct is an important aspect of disaster risk
reduc on.
The framework for disaster risk reduc on comprises of a four -pronged approach, a) Elimina on or
preven on of the hazard b) Reducing vulnerability c) Reducing exposure and d) Building Capacity. With
respect to disaster risk reduc on for cultural heritage sites and precincts, certain aspects need to beconsidered: a) Preserving and retaining cultural heritage values b) Retaining authen city c) Using
tradi onal technologies and skill and indigenous knowledge systems d) A degree of acceptable risk
should be established for the cultural heritage site or precinct and such a threshold should inform risk
reduc on interven ons.

2.8 Global Catastrophic Risks
A global catastrophic risk comes from very rare event that will have severe impacts on a glob al scale,even crippling or posing a threat to the whole of humanity (GCF 2018). An event that could cause
human ex nc on or permanently and dras cally curtail humanity's poten al is known as an existen al
risk. Poten al global catastrophic risks include anthropogenic risks, caused by humans (technology,
governance, climate change), and non-anthropogenic or external risks. Examples of anthropogenic
risks are global war including nuclear holocaust or the failure to manage a natural pandemic. Examplesof non-anthropogenic risks are an asteroid impact event or a super-volcanic erup on. The 1815
erup on of Mount Tambora was the most powerful in human recorded history. The ash released
dispersed around the world lowering global temperatures in an event some mes known as the Year
Without a Summer in 1816. This brief period of signiﬁcant climate change triggered extreme weather,harvest failures and food shortages in many areas around the world. Several climate forcings coincided
and interacted in a manner not reported earlier a er any other large recorded volcanic erup on. Onceof the dangers, is that such events could cut food supplies dras cally and countries must be preparedfor feeding the survivors. While there are some discussions on the global catastrophic risks, there is
not much clarity on preparing for such situa ons. India too needs to closely follow the global
ini a ves.

57

NATIONAL DISASTER MANAGEMENT AUTHORITY

58

NATIONAL DISASTER MANAGEMENT PLAN

3

Coherence and Mutual Reinforcement ofThree Post - 2015 Global
Frameworks for DRR

3.1 Background
The Post-2015 goals and agenda are set forth in the three landmark global agreements reached in2015 – the Sendai Framework for Disaster Risk Reduc on (Sendai, Japan, March 2015), Sustainable
Development Goals (UN General Assembly, New York, September 2015) and Climate Change
Agreement (Conference of Par es, COP21, Paris, December 2015). The three documents set the stage
for future global ac ons on DRR, sustainable development and climate change. These threeagreements have created a rare but signiﬁcant opportunity to build coherence across diﬀerent areas
having several shared or overlapping concerns. Taken together, these frameworks represent a nearlycomplete agenda for building resilience, as that requires action spanning development, humanitarian,climate change impacts and disaster risk reduc on. India is commi ed to these global frameworks
and the government of India has taken various measures for realiza on of the goals throughinvolvement of government, private sector and the non-government organisa ons.
The agreements represent a major turning point in the global eﬀorts to tackle exis ng and futurechallenges in all countries. Speciﬁc emphasis is apparent to support resilience-building measures, anda shi away from managing crises to proac vely reducing their risks. The agreements have varying
degrees of emphasis on sustainable development, DRR, resilience and climate change. An importantelement in the Sendai Framework is to mutually reinforce with the other post-2015 global agendas bydeliberately pursuing coherence across and integra on of DRR, sustainable development, responses
to climate change and resilience. In keeping with the global trends and priori es, the NDMP has also
been restructured to ensure coherence and mutual reinforcing of the na onal ini a ves in thedomains of DRR, sustainable development and the responses to meet challenges of global climatechange.

3.2 Sendai Framework for DRR
3.2.1 New Emphasis on Disaster Risk Management
The Sendai Framework for Disaster Risk Reduc on 2015-2030 was adopted at the Third UN World
Conference in Sendai, Japan, on March 18, 2015. It is the outcome of stakeholder consulta ons
ini ated in March 2012 and inter-governmental nego a ons from July 2014 to March 2015,
supported by the United Na ons Oﬃce for Disaster Risk Reduc on at the request of the UN General
Assembly. The foreword to the Sendai Framework describes it as “the successor instrument” to the
Hyogo Framework for Ac on (HFA) 2005-2015: Building the Resilience of Na ons and Communi es toDisasters.
The Sendai Framework for DRR (SFDRR or Sendai Framework), the ﬁrst interna onal agreement
adopted within the context of the post-2015 development agenda, marks a deﬁnitive shi globallytowards comprehensive disaster risk management aimed at disaster risk reduc on and increasing
59

NATIONAL DISASTER MANAGEMENT AUTHORITY

disaster resilience going far beyond disaster management. This approach calls for se ng the overall
goal as that of preven ng new and reducing exis ng disaster risk through the implementa on of
integrated measures. The goal now is on DRR as the expected outcome, se ng goals on preven ng
the crea on of new risks, reducing the exis ng ones, and strengthening overall disaster resilience. In
addi on, the scope of DRR has been broadened signiﬁcantly to focus on both natural and humaninduced hazards including various related environmental, technological and biological hazards andrisks. The Sendai Framework acknowledges the interlinkages between climate change and disasterrisks. Disasters that tend to be exacerbated by climate change are increasing in frequency andintensity.
The SFDRR is a non-binding agreement, which the signatory na ons, including India, will a empt tocomply with on a voluntary basis. India will make all eﬀorts to contribute to the realiza on of the
global targets by following the recommenda ons in the Sendai Framework and by adop ng globally
accepted best prac ces. Building on the Hyogo Framework for Ac on, the outcome that Sendai
Framework aims to achieve globally over a span of 15 years by 2030 is the “substan al reduc on ofdisaster risk and losses in lives, livelihoods, and health and in the economic, physical, social, culturaland environmental assets of persons, businesses, communi es and countries.” To a ain the expected
outcome, Sendai Framework seeks to pursue the following goal: “Prevent new and reduce exis ng
disaster risk through the implementa on of integrated and inclusive economic, structural, legal, social,health, cultural, educa onal, environmental, technological, poli cal and ins tu onal measure s thatprevent and reduce hazard exposure and vulnerability to disaster, increase preparedness for response
and recovery, and thus strengthen resilience.”
In the domain of disaster management, the Sendai Framework provides the way forward for theperiod ending in 2030. There are some major departures in the Sendai Framework:

•
•
•

•
•

•

For the ﬁrst me the goals are deﬁned in terms of outcome -based targets instead of
focusing on sets of ac vi es and ac ons.
It places governments at the centre of disaster risk reduc on with the framework
emphasizing the need to strengthen the disaster risk governance.
There is signiﬁcant shi from earlier emphasis on disaster management toaddressing disaster risk management itself by focusing on the underlying drivers ofrisk.
It places almost equal importance on all kinds of disasters and not only on thosearising from natural hazards.
In addi on to social vulnerability, it pays considerable a en on to environmental
aspects through a strong recogni on that the implementa on of integrated
environmental and natural resource management approaches is needed for disaster
reduc onDisaster risk reduc on, more than before, is seen as a policy concern that cuts across
many sectors, including health and educa on

As per the Sendai Framework, it is necessary to address exis ng challenges and prepare for futureones by focusing on monitoring, assessing, and understanding disaster risk and sharing relevant
informa on. The framework notes that, to cope with disasters, it is “urgent and cri cal to an cipate,plan for and reduce disaster risk”. It requires the strengthening of disaster risk governance andcoordina on across various ins tu ons and sectors. It requires the full and meaningful par cipa onof relevant stakeholders at diﬀerent levels. It is necessary to invest in the economic, social, health,cultural and educa onal resilience at all levels. It requires investments in research and the use of60

NATIONAL DISASTER MANAGEMENT PLAN

technology to enhance mul -hazard Early Warning Systems (EWS), prepare dness, response, recovery,
rehabilita on, and reconstruc on.

3.2.2

Four Priori es; Seven Targets

The four priori es for ac on under the Sendai Framework are:

1.
2.
3.
4.

Understanding disaster risk
Strengthening disaster risk governance to manage disaster risk
Inves ng in disaster risk reduc on for resilience
Enhancing disaster preparedness for eﬀec ve response and to “Build Back Be er” inrecovery, rehabilita on and reconstruc on

India is a signatory to the Sendai Framework for a 15-year, voluntary, non -binding agreement which
recognizes that the State has the primary role to reduce disaster risk, but that responsibility should beshared with other stakeholders including local government, the private sector and other stakeholders.
India will make its contribu on in achieving the seven global targets set by the Sendai Framework(Fig 3-1):

7 GLOBAL TARGETS

Reduce Increase
Mortality/

global popula on
2020-2030 Average << 2005-2015 AverageAﬀected people/
global popula on
2020-2030 Average << 2005-2015 Average

Economic loss/
global GDP
2030 Ra o << 2015 Ra o

Countries with na onal
& local DRR strategies

2020 Value >> 2015 Value

Interna onal
coopera on
to developing countries
2030 Value >> 2015 Value

Availability and access

Damage to cri cal infrastructure& disrup on of basic services

to mul -hazard early warning
systems & disaster risk
informa on and assessments

2030 Values << 2015 Values

2030 Values >> 2015 Values

Figure 3-1: Sendai Framework for Disaster Risk Reduc on - 7 Global Targets
1) Substan ally reduce global disaster mortality by 2030, aiming to lower the averageper 100,000 global mortality rates in the decade 2020–2030 compared to the period
2005– 2015;2) Substan ally reduce the number of aﬀected people globally by 2030, aiming tolower the average global ﬁgure per 100,000 in the decade 2020–2030 compared tothe period 2005–2015;
3) Reduce direct disaster economic loss in rela on to global gross domes c product(GDP) by 2030;

61

NATIONAL DISASTER MANAGEMENT AUTHORITY

4) Substan ally reduce disaster damage to cri cal infrastructure and disrup on of ba sic
services, among them health and educa onal facili es, including through developing
their resilience by 2030;
5) Substan ally increase the number of countries with na onal and local disaster risk
reduc on strategies by 2020;
6) Substan ally enhance interna onal coopera on to developing countries throughadequate and sustainable support to complement their na onal ac ons for
implementa on of the present Framework by 2030;
7) Substan ally increase the availability of and access to mul -hazard early warning
systems and disaster risk informa on and assessments to people by 2030.
On 2 February 2017, the United Na ons General Assembly endorsed the Report of the Open-ended
Intergovernmental Expert Working Group (OIEWG) on Indicators and Terminology Related to Disaster
Risk Reduc on and the recommenda ons for indicators and terminology rela ng to disaster risk
reduc on (UNISDR 2016). The report of OIEWG is meant to help countries opera onalise the 38 global
indicators for measuring the progress towards realising global targets for DRR along with targets ofother major Post-2015 global frameworks (Annexe-III). The list as applicable to India will be used tomonitor the progress of Ministries / Departments and States/ UTs towards achievement of targets set
under the framework, by way of periodic repor ng. As part of this eﬀort, all ministries, departments,
states and UTs will compile data in accordance with the indicators for the base line period of 2005 to2015 and on an ongoing basis from 2015 onwards.

3.3 Sustainable Development Goals (SDG) and Disaster
Resilience
The Sustainable Development Goals (SDGs), adopted by the UN General Assembly on 25 September
2015, consis ng of 17 Global Goals (Fig. 3-2) and 169 targets, are a universal call to ac on to end
poverty, protect the planet and ensure that all people enjoy peace and prosperity. The 17 Goals buildon the successes of the Millennium Development Goals (MDGs), while including new areas such as
climate change, economic inequality, innova on, sustainable consump on, peace and jus ce, among
other priori es. The goals are interconnected – o en the key to success on one will involve tacklingissues more commonly associated with another.
Sustainable development (SD) and disaster risk reduc on (DRR) are closely interlinked. A single majordisaster or “shock” incident (i.e. a rapid onset disaster like an earthquake, storm, tsunami or landslide)can undo hard-won development progress and set back development by years. A “stress” incident (i.e.
a slow onset disaster like drought, sea level rise, and salinity intrusion into groundwater stocks) can
also cause long-term socio-economic harm. Climate change aggravates impacts from both natural
hazards and human-induced vulnerabili es by ac ng as a threat mul plier. Driven by climate change,
there is increase in the frequency and severity of extreme weather events (including storms, droughts,
heat waves and cold “snaps”). Such events mul ply the risks that people living in areas prone tonatural hazards already face.

62

NATIONAL DISASTER MANAGEMENT PLAN

Figure 3-2: Seventeen Sustainable Development Goals Source: UNDP 41
The possibili es of a aining SDGs are jeopardized because disasters undermine economic growth andsocial progress. No country or sector is immune to the impacts of natural hazards, many of which –the hydro-meteorological – are increasing in frequency and intensity due to the impacts of climatechange. While necessary and crucial, preparing for disasters is not enough, to realise thetransforma ve poten al of the agenda for SDGs, all stakeholders recognize that DRR needs to be its
integral core. Progress in implemen ng the Sendai Framework contributes to the progress of a aining
SDGs. In turn, the progress on the SDGs helps to substan ally build resilience to disasters. There areseveral targets across the 17 SDGs that are related to DRR. Conversely, all seven global DRR targets of
the Sendai Framework are cri cal for the achievement of the SDGs.

Figure 3-3: Coherence and mutual reinforcement of SDGs and Sendai Framework
Source: preven onweb.net 42

41

UNDP, Sustainable Development Goals, , h ps://www.undp.org/content/undp/en/home/sustainable development-goals.html (accessed Sep 20, 2019)42
Integrated monitoring of the global targets of the S FDRR and SDGs, h ps://www.preven onweb.net/sendaiframework/sendai-framework-monitor//common-indicators
63

NATIONAL DISASTER MANAGEMENT AUTHORITY

Resilience is acknowledged both explicitly and implicitly in the SDG targets. The vision set out in the
SDGs – for people, planet, prosperity and peace – will inevitably fail if shocks and stresses are notaddressed. The pledge that ‘no one will be le behind’ requires a speciﬁc focus on the poorest andmost vulnerable people, which is a key challenge: up to 325 million extremely poor people are likely
to be living in the 49 most hazard prone countries by 2030. A focus on strengthening resilience canprotect development gains and ensure people have the resources and capaci es to be er reduce,
prevent, an cipate, absorb and adapt to a range of shocks, stresses, risks and uncertain es. Fig. 3-3
depicts how the coherence and mutual reinforcement of the SDGs and Sendai Framework arereﬂected in outcomes and targets.

3.4 COP21 Paris Agreement on Climate Change Ac on andDisaster Risk Reduc on
The Paris Agreement was adopted on 12 December 2015 at the Twenty-ﬁrst session of the Conferenceof the Par es (COP21) to the United Na ons Framework Conven on on Climate Change (UNFCC) heldin Paris from 30 November to 13 December 2015. The agreement builds upon the UNFCCC and brings
together all na ons into a common cause to undertake ambi ous eﬀorts to combat climate change
and adapt to its eﬀects, with enhanced support to assist developing countries to do so (Fig. 3-4). The
agreement aims at “holding the increase in the global average temperature to wel l below 2°C above
pre-industrial levels and pursuing eﬀorts to limit the temperature increase to 1.5°C above pre industrial levels, recognizing that this would signiﬁcantly reduce the risks and impacts of climatechange”. Ar cle-7 dwells on establishing “the global goal on adapta on of enhancing adap ve
capacity, strengthening resilience and reducing vulnerability to climate change”43.

Mitigationby all nations
with NDCs

GlobalStock
TakingAdaptation
On Pat With
Mitigation

Long Term goal
temperature
anomaly well
below 20C,
towards 1.5"C,

Universal
Transparency
Framework

Five-year
cycles for
NDCs with
progression

ClimateFinance

Main Elements of COP21, Paris Agreement on Climate Change

Figure 3-4: Main elements of the COP21, Paris Agreement on Climate Change
The major goals adopted in the agreement are:i) A consensus on adop ng the long-term goal of keeping the increase in global averagetemperature to well below 2°C above pre-industrial levels
4364

Paris Agreement, COP21/UNFCC h ps://unfccc.int/sites/default/ﬁles/english_paris_agreement.pdf(accessed Sep 20, 2019)

NATIONAL DISASTER MANAGEMENT PLANii) Aim to limit the increase to 1.5°C, since this would signiﬁcantly reduce risks and theimpacts of climate changeiii) Accep ng the need for global emissions to peak as soon as possible, recognising that
this will take longer for developing countries andiv) To undertake rapid reduc ons of emissions in accordanc e with the best available
science
There is signiﬁcant convergence between the problems that disaster risk reduc on and climate change
adapta on seek to address (Fig. 3-5). The regions already exposed to climate-related hazards andeﬀects will be at greater risk due to a projected increase in the frequency and/or intensity of thosehazards and eﬀects because of global climate change.

Figure 3-5: Common concerns of climate change adapta on and disaster risk reduc on
The agreement aims to strengthen the ability of countries to deal with the impacts of climate change.
To reach these ambi ous goals, appropriate ﬁnancial ﬂows, a new technology framework and anenhanced capacity building framework will be put in place, thus suppor ng ac on by developing
countries and the most vulnerable countries, in line with their own na onal objec ves. The agreement
also provides for enhanced transparency of ac on and support through a more robust transparency
framework. It requires all signatories to make the best eﬀorts through “Na onally Determined
Contribu ons” (NDC) and to strengthen these eﬀorts in the years ahead.
The NDC includes requirements that all Par es report regularly on their emissions and on theirimplementa on eﬀorts. In 2018, Par es will take stock of the collec ve eﬀorts in rela on to progress
towards the goal set in the Paris Agreement and to inform the prepara on of NDCs. There will also be
a global stock-taking every ﬁve year to assess the collec ve progress towards achieving the purposeof the Agreement and to inform further individual ac ons by Par es. The agreement entered into
force on 4 November 2016, thirty days a er the date on which at least 55 Par es to the Conve n on
accoun ng in total for at least an es mated 55% of the total global greenhouse gas emissions havedeposited their instruments of ra ﬁca on, acceptance, approval or accession with the depositary.
India has ra ﬁed the agreement and submi ed her NDC along with the plan for mi ga on andadapta on strategies and ac ons. India is commi ed to engaging ac vely in mul lateral nego a ons
under the UNFCCC in a posi ve, crea ve and forward-looking manner. India’s objec ve is to establish
an effec ve, coopera ve and equitable global architecture under the UNFCCC based on climate jus ce
65

NATIONAL DISASTER MANAGEMENT AUTHORITY

and the principles of equity and common but diﬀeren ated responsibili es and respec ve
capabili es.

3.5 Coherence and Mutual Reinforcement—Thema c Area
for DRR
The presence of risk mul pliers is a threat to the success of all development frameworks and copingwith risks is a central to sustainable development. Given the changes in human demographics andtrends in development, impact of climate change (which dispropor onately aﬀects the poorest andmost vulnerable people), and increasing exposure to disaster risks, there has never been a greaterneed to enhance coherence and coordina on among all the major global ini a ves to reduce risks,vulnerability to hazards and enhance resilience. This coherence will serve to strengthen exis ng
frameworks to cope with risks and enhance the resilience for mul ple hazards. It will promote
governance systems to manage disaster risks aggravated by climate change impacts and makedevelopment resilient to various disaster risks.
Eﬀec ve reduc on of losses and risks from natural hazards and climate extremes requires integrated
ac ons at diﬀerent levels of governance. One of the greatest challenges is of cr ea ng ins tu onal
convergence that integrates global goals emana ng from the se agreements. Disaster risk reduc on(DRR) and Climate Change Adapta on (CCA) are part of key agendas being considered in all theserecent global agreements. All three agreements share a common aim of making development
sustainable. Strong commitment to ambi ous goals and accelerated implementa on of theseinterna onal agreements must be a global priority. Given the complementari es between the post 2015 agendas, leveraging the total impact of these instruments creates shared value. Eﬀorts must be
deployed to ensure that each of them do not build in “policy risks” or, contradictory policies, thatgenerate more - rather than less - risk in development. Taken together, the diﬀerent priori es, targets
and ac ons in the three frameworks cons tute a more comprehensive resilience agenda than when
implemented independently without mutual reinforcement because building resilience requires
ac on that spans the mul ple domains of development, humanitarian ini a ves, responding toclimate change and disaster risk reduc on.
On 2 February 2017, the UN General Assembly adopted resolu on A/71/644, which states thenecessary indicators to measure global progress in reducing loss a ributed to disasters 44. Throughcollec on of the informa on of these indicators, UN Member States can measure their progress indisaster risk reduc on eﬀorts by 2030 against the seven global targets deﬁned in the Sendai
Framework, including: mortality, persons aﬀected, economic loss, and damage to cri cal
infrastructure and disrup on of basic services. Synergies with the monitoring of these interna onal
frameworks are already recognised by the interna onal community. The UN Sta s cal Commissi on
has adopted indicators developed by the Inter Agency and Expert Group on the Sustainable
Development Goals, and this process is closely coordinated with the Sendai Framework. A global
indicator framework has been adopted by the UN General Assembly on July 6, 2017⁴⁵ .
The NDMP has tried to envisage coherence across the na onal eﬀorts for DRR, sustainable
development, and the ac ons in response to climate change (mi ga on and adapta on). The NDMP
44

UN General Assembly Resolu on, 71/644, Report of the open-ended intergovernmental expert working
group on indicators and terminology rela ng to disaster risk reduc on, A/71/644
45
UN General Assembly Resolu on, A/RES/71/313, Work of the Sta s cal Commission pertaining to the 2030
Agenda for Sustainable Development
66

NATIONAL DISASTER MANAGEMENT PLAN

iden ﬁes mutually reinforcing measures in these three domains. The mainstreaming of DRR can besynchronized with the ini a ves for sustainable development and the steps taken to addresses
climate change impacts as an inherent part of the development agenda. Many of the addi onal
challenges emerging from climate change impacts that act as hazard risk mul pliers and must be
integrated into the implementa on of the NDMP.

National Plan
Disaster Risk
Reduction

Disaster
Risk

e

nc

re

e
oh

MutualReinforcement

C

MutualReinforcement
National
Action Plan
ClimateChange
INDC

Coherence

Development

National
Development
Initiatives

e
nc
ere

MutualReinforcement

COP21
Actionsh
Co

ClimateChangeSendaiFramework
DRR

SDGs

Post-2015 Global Frameworks - Coherence and Mutual Reinforcement within National Eﬀorts

Figure 3-6: Post-2015 Global Frameworks—Coherence and Mutual
Reinforcement within Na onal Eﬀorts
Ideas on ensuring coherence and mutual reinforcement across the global frameworks on
development, disasters and responding to climate change covering almost every aspect of society andall sectors of economy are at an early and incipient phase. Enhancing resilience is the overarchingtheme as far as disaster risk reduc on is concerned. All these discussions make it quite clear that thesetasks cannot be separated from the mainstreaming of risk reduc on although it is an idea that
predates the concepts of coherence and mutual reinforcement across the global frameworks. The
ideas of coherence and reinforcement across frameworks expand the scope of mainstreaming beyond
how it was envisaged earlier (Fig. 3-6). The ways in which coherence and mutual reinforcement areenvisaged for SDGs and Sendai Framework is depicted in Fig. 3-7. Similarly, that for SDGs and COP21
Paris Agreement on climate change ac ons is depicted in Fig. 3-8. The measures envisaged for
ensuring coherence and reinforcement will be discussed in the chapter on mainstreaming. The India’s
na onal ini a ves relevant for DRR across the three Global Frameworks are summarised in Table 3-1.

67

NATIONAL DISASTER MANAGEMENT AUTHORITY

Figure 3-7: Envisaging coherence and Mutual Reinforcement of SDGs and Sendai Framework
Source: UNISDR46

46

UNISDR, Implemen ng the Sendai Framework to achieve the Sustainable Development Goals.
h p://www.unisdr.org/ﬁles/50438_implemen ngthesendaiframeworktoach.pdf (accessed Sep 20, 2019)

68

NATIONAL DISASTER MANAGEMENT PLAN

Figure 3-8: Envisaging coherence and mutual reinforcement of SDGs and COP21 forclimate change ac on
Source: Climate Diplomacy 47 and adelphi

Table 3-1: India’s na onal ini a ves relevant for DRR across the three Global Frameworks
Sendai – Global
Targets

Substan ally
reduce global
disaster mortality
1
by 2030 (20202030 compared
to 2005-2015)

Substan ally
reduce thenumber of2
disaster-aﬀected
people by 2030
(2020-2030

47

Sustainable
Development
Goals

SDG 1, 2, 11,
13

SDG 1, 11, 13

COP21 – Paris
Agreement on Climate
Change•Changes in the pa ernof extreme events
require enhanced
disaster resilience andadapta on•Addressing GACC risks
is crucial for
elimina ng poverty
and reducing
economic losses fromdisasters
Stresses the need foraccelerated ac on tobuild resilience throughrisk-sensi ve planningand implementa on of
DRR

Na onal Ini a ves Relevant
to DRR

Mul ple schemes andini a ves for DRR, economic
development, GACC
mi ga on and adapta on.

• Alloca on of resources andfunds for disasterpreven on and to develop
capaci es for DRR• Strengthening of the DRR
at all levels

h ps://www.climate-diplomacy.org/publica ons/infographic-making-development-sustainable-throughclimate-ac on (accessed Sep 20, 2019)69

NATIONAL DISASTER MANAGEMENT AUTHORITY

Sendai – Global
Targets

Sustainable
Development
Goals

COP21 – Paris
Agreement on Climate
Changecompared to
2005-2015)

Substan ally
reduce direct3
disaster economic
loss

Substan ally
reduce damage tocri calinfrastructure and4
disrup on ofbasic services(health,educa on, etc.)

Substan ally
increase disaster5
risk reduc on
strategies

Substan ally
increaseinterna onal
6
coopera on tocomplement
na onal ac ons
70

Na onal Ini a ves Relevant
to DRR• Promo ng disasterresilient development• Mainstreaming DRR andadapta on to GACC indevelopment

SDG 1, 11

The Paris Agreement
aims to hold global
average temperature
increase to well below
2°C above pre-industrial
levels and to pursue
eﬀorts to limit it to
1.5°C, recognizing that
this would signiﬁcantly
reduce the risks andimpacts of climatechangeGlobal adapta on goals
for enhancing adap ve
capacity, strengthening
resilience and reducing
SDG 1, 4, 9, 11, vulnerability to ensure
adequate adapta on
response in the context
of the global
temperature goal

Addressing GACC risks
that are crucial for
reducing economic
losses from disasters
along with a wellSDG 1, 3, 6, 11,integrated approach to13,
adapta on, sustainable
development,
environmental
management anddisaster risk reduc on
Firm commitments by
Close
countries to the global
interna onal
response to GACC based
coopera on to on INDCs andachieve SDGs
interna onal
coopera on for

Na onal commitment to DRR
evident from the PM Ten
Point Agenda for DRR
Na onal commitments formi ga on of and adapta on
to GACC as per Intended
Na onally Determined
Contribu ons (INDC)

Enhance the resilience ofna onal health systems by
integra ng DRR into primary,secondary and ter ary
health care, and bypromo ng and enhancing
training capaci es in the ﬁeldof disaster medicine. The
substan al reduc on ofdisaster damage to cri cal
infrastructure and disrup onof basic services is essen al
to ensure healthy lives andpromote well-being.
• NAPCC for mi ga on ofand adapta on to GACC
• Na onal Mission on
Sustainable Agriculture(NMSA)• Na onal Ini a ve on
Climate Resilient
Agriculture (NICRA)

India is a pro-ac ve memberin the implementa on of the
Post-2015 and other global
frameworks

NATIONAL DISASTER MANAGEMENT PLAN

Sendai – Global
Targets

Sustainable
Development
Goals

COP21 – Paris
Agreement on Climate
Changeachieving the COP21
goals

Na onal Ini a ves Relevant
to DRR

Substan ally
increase theavailability of and
Na onal investments toEmphasis on improving
access to mul improve the early warning
early warning systems,
7 hazard earlySDG 3, 13
and informa on systems inrisk assessment andwarning systems
diﬀerent sectors and for
managementand disaster risk
mul -hazards.
informa on andassessments
Note: All the central ministries have speciﬁc responsibili es in accordance with achieving thena onal targets relevant to the global frameworks.
For monitoring the progress of Sendai Framework, under seven targets of Sendai, a set of 38 indicators(Annexe-III, same as in 3.2.2) have been listed that must be measured against the me period of Hyogo
Framework for Ac on, i.e., 2005-15, in terms of the percentage change with respect to the baseline.
This sectoral segregated baseline data for the period of 2005 -15 will be collated by the central
Ministry/ Department and States/UTs. Meanwhile, NITI Aayog has adopted a Na onal Indicator
Framework (NIF) comprising 306 na onal indicators for monitoring the progress of 17 SDGs having
169 targets. As SFDRR and SDGs have clear cut established linkages, this NIF, besides others, includes
na onal indicators for targets 1.5.1, 1.5.2, 11.5.1, 11.b.1 and 11.b.2 focusing speciﬁcally on DRR. Theme frames used in the NDMP are co-terminus with the post-2015 global frameworks, ending in 2030.

71

NATIONAL DISASTER MANAGEMENT AUTHORITY

72

NATIONAL DISASTER MANAGEMENT PLAN

4

Social Inclusion in Disaster
Risk Reduc on

4.1 Background
Disaster situa ons raise many ques ons on norma ve social order and structural inequali es which
need to be reckoned with for an inclusive disaster response. Disaster management tend to view theaﬀected people as a homogenous group – as internally undiﬀeren ated ‘vic ms’ or ‘survivors’,
par cularly in the relief and recovery processes. This leads to an inherent inability to address theexis ng dispari es and inequi es across gender, caste, or class (Fordham 1999). While hazards do notdiscriminate, people do. Disaster management could become unfair by being blind to prevailinginequi es. Exis ng socio-economic condi ons mean that disasters can lead to dissimilar outcomeseven for what may seem demographically similar communi es. Inevitably, the most vulnerable groups
suﬀer more than others. This chapter emphasizes the importance of DRR to address unequal disastercoping capabili es by recognizing that due to inequali es and social exclusions some sec ons suﬀer
more than others in extreme events and disasters because of their place within the social system.
Addressing the enormous challenges of social marginaliza on, social exclusion and other inequi es
are beyond the domain of DRR. However, DRR must take cognizance of social reali es to ensure thatevery possible eﬀort is made to make DR R as socially inclusive as possible.
The Disaster Management Act 2005 (Chapter 11, Sec on 61) prohibits all forms of discrimina on – beit based on sex, caste, community, descent or religion – in any ac vi es related to disaster risk
reduc on, disaster relief or humanitarian assistance to the aﬀected people. The preamble of Na onal
Policy of Disaster Management 2009 notes that the economically weaker and socially marginalized
sec ons, women, Scheduled Castes and Scheduled Tribes tend to suﬀer more during disasters. A
community’s vulnerability to disaster depends on the social, cultural, economic and poli cal
environment. A cycle of depriva on not only increases their vulnerability but also slowly alienates
them from the decision-making process denying accessibility to the basic en tlements.
There are numerous deﬁni ons and concepts of social inclusion, and despite many debates, there isno consensus on a deﬁni on. The World Summit for Social Development, Copenhagen held in 1995
deﬁnes an inclusive society as a society for all, in which every individual, each with rights andresponsibili es, has an ac ve role to play. An inclusive society is based on the fundamental values of
equity, equality, social jus ce, human dignity, human rights and freedoms, as well as on the principles
of embracing diversity. Social inclusion reﬂects, on the one hand, an individual’s experience of andpossibili es for self-actualiza on, and on the other hand, societal capaci es to eliminate causes of
exclusion and ensure equal opportuni es for all (UNDESA, 2008).
The term social exclusion signiﬁes all experiences of discrimina on, depriva on and denial be it basedon any a ribute, be it caste, gender, diﬀerences in abili es, ethnicity, creed, religion, sexual
orienta on or any other a ribute. The prac ces and manifesta ons of social exclusion are deeply
ingrained in a rigid social stra ﬁca on system inﬂuenced by caste, religious aﬃni es, gender bias,
prejudices towards people with disabili es and so on. Social exclusion is understood as the condi on(barriers and process) that impede social inclusion. Social exclusion is a process through which
individuals or groups are wholly or par ally excluded from fully par cipa ng in all aspects of life of thesociety, in which they live, on the grounds of their social iden es, such as age, gender, race, ethnicity,
culture or language, and/or physical, economic, social disadvantages.

73

NATIONAL DISASTER MANAGEMENT AUTHORITY

Exclusion is o en most acute when people suﬀer mul ple layers of discrimina on and they areembedded in unequal rela ons of power. To make ma ers worse, they o en remain ‘invisible’ indisaster reduc on or emergency response program s, even in many cases where they cons tute asigniﬁcant propor on of popula on. The socially excluded groups have context speciﬁc anddiﬀeren ated needs before, during and a er a disaster, which are not taken into considera on in
DMPs. Inclusive Disaster Risk Management is about equality of rights and opportuni es, dignity of theindividual, acknowledging diversity, and contribu ng to resilience for everyone, not leaving aside
members of any community based on age, gender, disability or other. In the Indian context, the addedemphasis on social inclusion in the NDMP for DRR will be on the following:
1.
2.
3.
4.
5.

Gender-based Vulnerabili es
Scheduled Castes and Scheduled Tribes (SC&ST)
Elderly
Children and
Persons with Disabili es (PWD)

4.2 Gender Perspec ve and DRR
4.2.1

Gender-based Vulnerabilities

In general, gender concerns arise from a complex mix of dynamic factors that include diﬀeren atedroles and responsibili es, skills and capabili es, vulnerabili es, power rela ons, ins tu onal
structures, and long-standing tradi ons and a tudes. The speciﬁci es of gender rela ons may varydepending on the socio-cultural values of a society. However, the fundamental gender -based divisionsof roles, responsibili es and iden ties are prevalent in varying degrees throughout the world. Withingender rela ons there are many imbalances (gender gaps) between men and women, which havehistorically been favourable for men within an overwhelmingly patriarchal society. All these prevent
women from enjoying equal-rights and equal-partner status in DRR as policy makers, contributors toand beneﬁciaries of development and DRR processes.
Gender refers to the social a ributes and opportuni es associated with being male and female andthe rela onships between women, men, girls and boys, as well as the rela ons between women andbetween men. These a ributes, opportuni es and rela onships are socially constructed, learned, andchangeable over me. Gendered disadvantages – unequal access to resources, legal protec on,
decision making and power, their reproduc ve burden and their vulnerability to violence –consistently render women more vulnerable than men to the impacts of disasters. Disasters reinforce,
perpetuate and increase gender inequality, making bad situa ons worse for women. The poten al
contribu ons that women can oﬀer to the disaster risk reduc on are o en overlooked and female
leadership in building community resilience to disasters is frequently disregarded.
A gender perspec ve to DRR helps focusing a en on on the dis nct gender -speciﬁc capaci es andvulnerabili es to prevent, prepare, confront, and recover from disasters (WCDRR 2015). Post-disasterreconstruc on programs could render women more vulnerable w hen compared to the pre-disastersitua on, defea ng the very objec ve of building back be er. An increase in violence against women,
domes c violence and divorce rates have been reported in the a ermath of disasters (Fothergill
1998). They become more vulnerable to abuse in disaster situa ons. They face diﬃculty in accessing
sanita on facili es. There is lack of privacy and increased risk of sexual assault. In some situa ons,
74

NATIONAL DISASTER MANAGEMENT PLAN

there are risk of girls and young women being ensnared by traﬃckers or an increase in early marriages.
There is a tendency to leave out women from accessing relief and recovery as they do not have control
over resources and ins tu ons (Parkinson 2011). Women headed households, single women, andwidows ﬁnd it diﬃcult to access informa on and necessary ﬁnancial help for recovery andreconstruc on.
Following a disaster, there are many situa ons in which there is likelihood of women becoming vic msof domes c and sexual violence. There are cases women avoiding using shelters for fear of being
sexually assaulted. Women are more likely to suﬀer from malnutri on because they have speciﬁc
nutri onal needs when they are pregnant or breast feeding. During drought, in food scarcity
situa ons, women are the ﬁrst ones to compromise on their food intake. They are usually
overburdened with many household tasks such as fetching drinking water and ﬁrewood walking long
distances. Women and girls are usually denied the opportunity to acquire lifesaving skills such as
swimming because of gender bias rendering them less capable of coping with hazards. Their
tradi onal gendered role as caretakers and nurturers intensiﬁes in post disaster situa ons having totake care of the injured and sick when they themselves are injur ed.
During post-disaster planning, relief and recovery needs of women and girls tend to be overlooked
because the disaster management is almost en rely male dominated with hardly any par cipa on of
women. They are o en ignored during compensa on proceedings. While most women do not possess
formal ownership of either movable or immovable proper es (land or assets), even those who haveownership ﬁnd it diﬃcult to complete the formali es due to various pressures at home and the lackof gender sensitivity in the proceedings. Their losses usually remain undervalued and uncompensated.
It is necessary to adequately understand how the disaster risks tend to be ampliﬁed by the pre-exis ng
social vulnerabili es and socio-economic stress. O en, unknowingly, due to social condi oning andgendered roles, women tend to demand less in the reconstruc on process. Many barriers inhibit
women’s par cipa on in the decision -making and rebuilding processes. Yet, disasters do provide
opportuni es for improving women’s status by altering the gender rela ons and by facilita ng social
and behavioural changes. Post disaster recovery presents opportuni es to empower women. Despite
these formidable challenges, amidst gender bias and inequality, some of the reconstruc on programs
undertaken in India have tried to empower women, taking advantage of the window of opportunity
opened by the disaster.
Post-disaster reconstruc on is expected to “present opportuni es for new and more progressive
gender roles and rela onships to emerge and provide opportuni es to rebuild in a way that is inclusiveof women and girls and provide opportuni es for women to assume leadership roles and be er
inﬂuence the direc on of development pa erns” (UNISDR 2015a). A gender perspec ve to DRR helps
focusing a en on on the dis nct gender-speciﬁc capaci es and vulnerabili es to prevent, prepare,confront, and recover from disasters (WCDRR 2015). Disaster impacts are not gender neutral, hence
adequate a en on must be paid to promote gender jus ce and equity in post disaster recovery
programs.
In the disaster situa ons, women need to be centrally involved in planning and implementa onprocess with the key principle of ac ve contributors in building resilience. The Sendai Framework
emphasizes the need not only to address the issues related to women in post-disaster reconstruc on
but also envisages a lead role for women in post-disaster reconstruc on: Women and persons withdisabili es should publicly lead and promote gender-equitable and universally accessible approaches
during the response and reconstruc on.

75

NATIONAL DISASTER MANAGEMENT AUTHORITY

To promote gender equity, the reconstructed houses need to be registered in the joint names ofhusband and wife. Widows and single women, who do not have land tles, should not be le out fromreceiving shelters. Women feel more secure, conﬁdent and feel that they will never be without a roof
over their head in their life. Owner Driven Reconstruc on (ODR) can be followed where women cantake leadership role in monitoring implementa on of safe housing technology. Programs shall be
designed and aimed at empowering women through access to social security measures and income
genera on ac vi es. Women Self Help Groups can be formed for livelihood opportuni es. It needs togo beyond tradi onal income genera ng ac vi es and aim at enhanc ing skills as masons, carpenters,
trading of local products, developing local shops for housing, sanita on and other materials, etc.

4.2.2

Sexual and Gender Minori es

To be truly gender-sensi ve, it is necessary to address the concerns of persons of various sexual
orienta ons including transgender48 persons. Transgender people are at a disadvantage in accessing
resources, services and opportuni es. In addi on to social and economic vulnerabili es, the s gma
and discrimina on that they are subjected to, deprives them of many disaster mi ga on/response
programmes, hampering their ability to overcome the nega ve eﬀects of a disaster. The approaches
to disaster risk management, however, tend to overlook the needs and place of sexual and genderminori es. The ins tu onal and legal frameworks geared towards reducing the risk of disasters areusually silent on such sec ons. It is only recently that a handful of case studies have highlighted thefate of sexual and gender minori es in disaster. Most of the research on disaster-related
vulnerabili es faced by the sexual and gender minori es concur that the y are o en more severely
aﬀected by disasters because they face barriers or lack of access to the means of protec on available
to others. The highly marginalized condi ons of sexual and gender minori es in everyday life thus
places them at higher risk when confronted with disaster situa ons. Their vulnerabili es will beaggravated if DRR policies and prac ces remain blind to the social reali es. There is greater likelihoodof addressing the concerns of a marginalized group like transgenders in disaster situa ons when they
are speciﬁcally accounted for during implementa on. For example, the need for ensuring inclusion of
all such sec ons could be emphasized in the diﬀerent phases of DRR.

4.3 Scheduled Castes and Scheduled Tribes
Certain castes and tribes – the scheduled castes and tribes – are recognized in the Indian Cons tu on
as historically disadvantaged people and listed in two Schedules of the cons tu on for aﬃrma ve
policies and ac ons. The First Schedule lists 1,108 castes across various states and the Second
Schedule 744 Tribes for aﬃrma ve policies and ac ons. The castes listed are known as Scheduled
Castes (SC) and the tribes listed are known as Scheduled Tribes (ST). As per 2011 Census, the SC andST comprise about 16.6% (20.14 Cr) and 8.6% (10.43 Cr), respec vely, of India's popula on.
In acknowledgement of the marginality of tribal communi es, several Commi ees and Commissions
have been cons tuted over the years by the government to examine the problems faced by thesecommuni es, apart from numerous other bodies which have examined the status of tribes as part ofbroader thema c inves ga ons. The Scheduled Castes and Scheduled Tribes (Preven on of Atroci es)
Act, 1989 and the related rules no ﬁed in 1995 have been amended to make them more eﬀec ve.
48

76

The word “transgender” or “trans” covers persons whose gender iden ty is diﬀerent from the sex assigned
at birth. That includes LGBTQ+ (Lesbian, Gay, Bisexual, Transgender, Queer or Ques oning , and Intersex plus
several others)

NATIONAL DISASTER MANAGEMENT PLAN

The amended Preven on of Atroci es Act, 2015 has brought in clarity on some sec ons, clearlydeﬁned certain oﬀences, ﬁxed roles and responsibili es of the authori es and has clear melines
regarding inves ga on and judicial handling of atrocity cases.

4.3.1

Scheduled Castes

Caste based discrimina on is a historical legacy for India. In the hierarchical caste society, the Schedule
Castes o en face social exclusion, untouchability and many forms of overt as well as covert
discrimina on. Recognizing this, the Cons tu on of India, under Ar cle 15, provides for ‘prohibi onof discrimina on on the grounds of religion, race, caste, sex or place; and under Ar cle 17 provides
for ‘aboli on of untouchability’, making it a punishable oﬀenc e. Acknowledging the marginaliza on of
Schedule Caste communi es, the Na onal Commission for Schedule Caste has been cons tuted tosafeguard the provisions under the cons tu on and inquire into speciﬁc complaints. The Schedule
Caste and Schedule Tribe Preven on of Atroci es Act 1995 and subsequent amendment in 2015
provide legal protec on against atroci es and discrimina on. Eﬀorts must be made to ensure there
are no discriminatory prac ces in any DRR ac vi es or while providing humanitarian assistance. The
DRR eﬀorts should also speciﬁcally recognize caste -related challenges and should not adopt casteblind approaches.
Most of the SC and ST communi es tend to be poor living on marginal lands that are also highly hazard
prone, such as ﬂoodplains, unsafe coastal tracts and unstable hillsides. The dwellings of scheduled
caste and tribal communi es are usually on the margins - be it in urban or rural areas. Thesese lements tend to be in the less served areas with poor availability of acc urate informa on, lack ofaccess to basic ameni es and inadequate disaster resilient infrastructure. The housing is usuallyunsafe and of poor quality. In the urban areas they are usually on unsecure land tenure - o en
unauthorized slums. Combined with hazardous living condi ons, chronic poverty and lack of ameni es
they are most likely to suﬀer the outbreak of diseases in mes of disaster. For women from the SC
and ST communi es, the gender-based discrimina on and violence become intensiﬁed and morediﬃcult to counter due to the caste-based social marginaliza on.
It must be ensured that in post disaster situa ons and in disaster mi ga on planning andimplementa on ac vi es full a en on should be provided to ensure social inclusion prac ces in early
warning, evacua on, relief support, rehabilita on and any other process so that the inherent systemic
prejudices do not increase their vulnerability. For example, special eﬀorts should be made to ensurethat there are no instances of discriminatory prac ces in evacua on, distribu on of relief material,
damage assessment, alloca on of housing plots, etc.

4.3.2

Scheduled Tribes

The Cons tu on of India has created Schedule V and VI to protect the iden ty, tradi ons and customsof the tribal communi es without neglec ng their development. This has been further ar culated in
the Panchayats Extension in Schedule Areas (PESA), 1996. Tribal communi es tend to remain
marginalized due their geographical loca on as well as due to social excl usion. Tribal communi es are
simple socie es endowed with socio-cultural cohesion, tradi onal knowledge, social rela ons aroundthe forest and natural ecosystem and community governance based on their tradi on. Tribal
communi es have very close interdependent rela on with their natural resources and environment.
Some of tribal groups have never moved out of the natural habitat in the forest areas.

77

NATIONAL DISASTER MANAGEMENT AUTHORITY

The basic thrust of mi ga ng the impact of natural disaster should be of two-fold: a) make the tribal
people self-reliant by restoring the natural resource base and b) post-disaster, provide mely andappropriate relief and rehabilita on packages. The Tribal Development Ministry and the State
Departments in consulta on with the tribal leaders and experts shall develop the package ofinterven ons. Eﬀorts must be made so that there is community par cipa on and ownership over theinterven ons. The tribal villages should be able to customize their plans in accordance with PESA
disaster preparedness, relief and rehabilita on plans.

4.4 Children
The United Na ons Conven on on the Rights of the Child adopted in 1989 (UN 1989) became the ﬁrst
legally binding interna onal conven on to aﬃrm human rights for all children . It s pulates thatchildren have the right to adequate food, water, shelter and educa on. In disaster situa ons theyought to be free from abuse, neglect, sexual exploita on or traﬃcking, and should be able to grow up
in a safe and suppor ve environment. Children are vulnerable due to their age and immature psychosocial understanding of the surrounding.
The chaos and erosion of support for care and protec on during a disaster could heavily aﬀect their
physical and psychological health causing children to be trauma zed. Given their vulnerability,
children require special support and a en on during crisis situa ons to provide basic needs andensure that their rights are not violated. The UN Conven on on the Rights of the Child and the Juvenile
Jus ce (care and protec on of children) Act 2000 (JJ Act) states that children have the right toprotec on from abuse, neglect and exploita on.
In situa ons of emergency children face isola on, anxiety, trauma, some get separated from theirfamilies, loose their parent(s), face gender violence and traﬃcking. Some face the risk of ge ng
recruited as child labourers. During disaster, children’s bodily integrity is at risk when widespread
and/or systema c violence occur. The children o en face apathy leading to severe interrup on of
educa on and recrea on, poor access to food and nutri on. In the post disaster situa ons, theAnganwadi and schools must open as soon as possible. In case of damage to the structures,
temporary/ emergency provision must be created allowing children to access the services. The state
governments may increase the food supplies so that the nutri on support can be doubled in theAnganwadis and primary schools. Many state governments have been doing this for a limited dura on
in disaster situa ons.
The JJ Act, 2000 provisions for care, protec on and rehabilita on of children ensuring se ng up ofChild Protec on Units. Such units must be set up at village and block level so that children have accessto nutri on, child friendly spaces for recrea on, protec on against violence and traﬃcking,restora on of children to their biological families, promote community -based rehabilita on of theorphan and children of single parent not in a posi on to provide care and protec on making use ofState speciﬁc foster parent support services/ schemes. The Ministry of Women and Child
Development (MWCD) and Ministry of Social Jus ce and Empowerment (MSJE) and the Ministry of
Human Resource Development (MHRD) along with the Na onal Commission for Protec on of Child
Rights (NCPCR) and the State counterpart (usually, State Child Protec on Society – SCPS) under theProtec on of Child Rights Act, 2005 may develop support mechanisms and periodically oversee thestatus of care and protec on of children in all major disasters and recommend for mely ac on.

78

NATIONAL DISASTER MANAGEMENT PLAN

4.5 Elderly
The world is ageing. Globally, approximately 700 million people or 10 per cent of the world’s
popula on is already over the age of 60, and by 2030, there will be more people over 60 than under
10. While this represents a triumph of development, the combina on of more extreme climate anddisaster events coupled with the failure to adapt DRR responses to the ageing demographic trend has
the poten al to increase older people’s vulnerability to risks and disasters. Yet, the speciﬁc
requirements and strengths of older people are o en not given appropriate considera on in DRR. A
report of the Government of India, ‘Elderly in India’ (CSO 2016), presents detailed sta s cal proﬁle ofthe elderly popula on based on various oﬃcial data. The report states that like other na ons, India
too has undergone changes in the age structure of the popula on with the propor on of older persons
increasing due to increased life expectancy brought about by combina on of many factors such as
reduc on in mortality rates, lower morbidity, be er quality of life, and be er health care. Thisphenomenon, called popula on ageing, is a demographic trend all over the world.
According to na onal Census 2011, there are nearly 104 million elderly persons (aged 60 years orabove); 53 million females and 51 million males. Both the share and size of elderly popula on isincreasing over me. From 5.6% in 1961 the propor on has increased to 8.6% in 2011 (men 8.2%,
women 9.0%). In terms of rural and urban distribu on, 71% of the elderly are in rural and 29 % is inurban areas. As per Census 2011, the sex ra o among elderly is 1033 women per 1000 men. The life
expectancy at birth is 69.3 years for females and 65.8 years for males. At 60 years of age, the averageremaining length of life is likely to be about 18 years (16.9 for men and 19.0 for women). At age 70, it
was less than 12 years (10.9 for men and 12.3 for women). The old-age dependency ra o is 14.2%, as
per Census 2011 (females 14.9%, males 13.6%). Most common disability among the aged persons was
locomotor disability and visual disability.
According to Helpage India, during disasters the elderly are usually the last in the line, likely to be lostin the crowd, and highly vulnerable49. The greater vulnerability of the elderly compared to others
during disasters needs to get more a en on in all phases of disaster risk management. The elderly
needs to be treated as priority group by proper design in the disaster management plans. The DRR
planning needs to pay special a en on to psychological vulnerabilities, impaired physical mobility,
diminished sensory awareness, poor health condi ons as well as weak social and economic limita onsthat severely limit the capacity of the elderly to prepare for disasters, hinder their adaptability andconstrain their ability to respond.
The UN Charter 14 (UNISDR 2014) for older people in DRR focuses on three key principles of an
inclusive approach to DRR and there are fourteen minimum standards which underpin these key
principles. The three principles are:
1. In need: Older people have speciﬁc requirements which must be understood and responded
to within all DRR ac vi es.
2. Invisible: Older people’s vulnerabili es and capaci es are o en overlooked; the collec on ofdata on people’s age and sex is essen a l to ensure older people and other people at risk arevisible and supported in DRR.

49

Helpage India, h ps://www.helpageindia.org/our-work/welfare-development/disaster-management/(accessed Sep 20, 2019)
79

NATIONAL DISASTER MANAGEMENT AUTHORITY

3. Invaluable: Older people have years of knowledge, skills and wisdom which are invaluableassets in DRR and must be acknowledged, valued and engaged by suppor ng older people topar cipate in DRR.
The Charter calls for stronger commitment from governments, donors and organiza ons to act on the
shortcomings in DRR policies, strategies and prac ces that o en insuﬃciently respond to older
people’s disaster risks. They must acknowledge and fulﬁl older people’s rights and engage older
people’s capaci es and contribu ons. This charter has been developed through consulta ons withgovernments, NGOs, DRR and ageing experts as well as older men and women. The Maintenance andWelfare of Parents and Senior Ci zens Act, 2007 provides legal framework for the wellbeing of senior
ci zen lacking any support from family or close rela ves.
In post disaster situa ons, it is essen al that the needs of elderly are considered separately, rather
than clubbing them with others keeping in mind the speciﬁc concerns applicable to them. It ispreferable to have community-based senior-ci zen support mechanisms so that the senior ci zensare not uprooted from their immediate surrounding. This should include eﬀorts to educate local
communi es about how they can help senior ci zens and raise their awareness about suppor ng theelderly. The district DRR plan may prepare a list of senior ci zens living without any family support. In
the post disaster situa on, looking at the gravity of the situa on, the District Collector may take a callto set up temporary arrangements for the elderly and to take care of the personal needs such as food,medicine, shelter and other requirements. Special arrangements could be made to protect theproperty and assets of senior ci zens if required.

4.6 Persons with Disabili es (PWD)
Disability is a contextual and evolving concept. The UN Conven on on the Rights of Persons with
Disabili es (UNCRPD) states in its ﬁrst ar cle: “Persons with disabili es include those who have long term physical, mental, intellectual or sensory impairments which in interac on with various barriers
may hinder their full and eﬀec ve par cipa on in society on an equal basis with others”. The
Conven on, in its ar cles 11 and 32, requires that persons with disabili es beneﬁt from andpar cipate in disaster relief, emergency response and disaster risk reduc on strategies. The Adop onof the Dhaka Declara on on Disability and Disaster Risk Management, in December 2015,
acknowledges: “the importance of linking disability inclusive Disaster Risk Management (DRM) with
the Sustainable Development Goals (SDGs) on the understanding that inclusion builds the resilienceof the whole of society, safeguards development gains and minimizes disaster losses”.
The popula on of PWD in India, as per census 2011, is 2.68 Cr, which is 2.2% of the popula on. Of
these 56% are males and 44% are females. In the total popula on, the male and female popula on
are 51% and 49% respec vely. Majority of the PWD (approx. 69%) live in rural areas, which is nearlysame the share of rural popula on. A global survey by UNISDR50 in 2013 among 5,717 persons livingwith disabili es in 137 countries and eight non-self-governing territories examined why the numberof the dead and injured PWD are dispropor onally high in conﬂict, disasters and other emergency
situa ons. The survey showed that 72.9% of PWDs have no personal preparedness plans. PWDs acrossthe world say they are rarely consulted about their needs. The survey found that in the event of asudden disaster, only 20% of PWD could evacuate immediately without diﬃculty, while the majority
would have some level of diﬃculty or not be able to evacuate at all. A Handicap Interna onal study

5080

h ps://www.unisdr.org/archive/35032 (accessed on Sep. 20, 2019)

NATIONAL DISASTER MANAGEMENT PLAN

in 2015 (HI 2015) found that 75% of people with disabili es believe they are excluded fromhumanitarian responses to emergencies like natural disasters and conﬂict .
It has been observed that persons with disabili es (PWD) are o en overlooked and thus not only
excluded in risk reduc on and disaster response measures but are also subject to at higher risk thanothers. The NDMA has brought out relevant guidelines51 which must be consulted. Neglected
throughout the DRM cycle, concerns about inclusion relate to limited social par cipa on in DRR
ac vi es, poor access to informa on and services, poverty, invisibility during relief opera ons,
response to basic needs not adapted and speciﬁc needs ignored. The most common priority iden ﬁed
by PWDs in the UNISDR survey of 2013 for improving inclusiveness of PWD in disaster risk reduc on
is for the involvement of PWD in DRR-related ac vi es. The survey also emphasized the need forsuppor ve policies, laws and promo on of support systems involving neighbours and local
community.
DRR eﬀorts must speciﬁcally address the vulnerabili es of PWD among the aﬀected popula on , rather
than clubbing them with others. Special a en on must be paid to ensure that no PWD is abandoneda er a disaster. Local community -based eﬀorts and support system including promo ng a buddysystem whereby each PWD have one or more persons in the neighbourhood who are responsible toact as a buddy to assist. The neighbours must be made aware of how they can help the PWD andprovided training. The PWD must also make pro-ac ve eﬀorts to iden fy people in the neighbourhood
whom they can rely upon for assistance in emergencies. It is good to have more than one "buddy",
par cularly in diﬀerent areas where the PWD spend more me, such as workplace, home, or school.
The more people who can assist are there so much the be er. It is also important for PWD to keep
their helpers or buddies well informed about their special needs and for the helpers to remain in
regular touch with those they are responsible for. A detailed disaster response planning at the local
level must include lists of PWD in need special care. In the post disaster situa on, the agencies
responsible for disaster management may set up temporary facili es that are barrier-free and friendly
to PWD. The administra on can provide special arrangements to protect the property and assets of
PWD, if required.

4.7 Making Disaster Risk Management Inclusive
At each level, stage and step, DRR eﬀorts need to be guided by the Ar cle 1 of the Universal
Declara on of Human Rights that states:“All human beings are born free and equal in dignity and rights. They are endowed withreason and conscience and should act towards one another in a spirit of brotherhood.”
The DRR eﬀorts must take up social inclusion as challenge recognizing its complex and diverse nature.
A social inclusion strategy must iden fy a series of prac cal objec ves and ac ons that cansigniﬁcantly decrease or eliminate social exclusion in all aspects of DRR. The DRR eﬀorts need to design
local strategies to promote inclusion. All agencies involved in DRR – government, non-government orinterna onal – must make special eﬀorts to properly assess the needs of all the marginalized sec ons
and par cularly vulnerable groups and to ensure full compliance with prescribed standards forassistance. Care must be taken to ensure that the vulnerability mapping exercises are able to iden fy
properly all relevant factors. Eﬀorts must be made to f acilitate the realiza on of rights anden tlements of all socially excluded sec ons. A poten al path forward in promo ng social inclusion is51

Na onal Disaster Management Guidelines on Disability Inclusive Disaster Risk Reduc on, NDMA, 2019 .
81

NATIONAL DISASTER MANAGEMENT AUTHORITY

to encourage community par cipa on as inclusion depends crucially on ac ve involvement of diverse
sec ons of society.
Social inclusion is theme cu ng across all aspects of DRR. While this chapter provides an overall
perspec ve on the signiﬁcance of social inclusion in DRR, its importance is given addi onal emphasis
in diﬀerent sec ons and related responsibility frameworks. Despite social inclusion being a cross cu ng feature, it is added as a dis nct Thema c Area fo r DRR in the responsibility framework alongwith indica ve Sub-Thema c Areas.

82

52

GenderAll Agencies
Associated with
DRR directly or
indirectly

Suppor ng
Agencies:

MHA, NDMA,NIDM, MHFW

Agencies withmajor roles:

MSJE and
MWCD

Lead Agencies:

Centre (Lead
Agencies)• Guidance and support forgender sensi ve DRR
approaches• Studies and research• Support for review andchanges in exis ng
regula ons, norms anddirec ves52• Promote insurance/ risk
transfer; encourage gendersensi ve products/
campaigns from insurance
providers• Guidelines, IEC, mass media
campaigns• Capacity development
guidelines• Inclusion of gender concernsof DRR in curriculum
development

Responsibility - Centre

All Agencies
Associated with
DRR directly or
indirectly

Suppor ng
Agencies:

SDMA, DMD$

Agencies withmajor roles:

DSJE, DWCD

Lead Agencies:

State (Lead
Agencies)• Ensure that special eﬀorts are made to make DR R
gender inclusive and to ensure par cipa on ofwomen• Ensure that there are no discriminatory prac cesthat marginalise sexual and gender minori es atany stage of DRR,
• Recognise the addi onal vulnerabili es of sexualand gender minori es such as transgenders• HRVCA - Risk Assessment to take care of womenand transgender vulnerabili es• Use of Informa on and Data Management tosupport gender sensi ve approach - DDMA and
SDMA• Convergence of concerned departments to ensure
gender sensi ve DRR• Shelters/ Temp Shelters/ Relief Camps - provision
for speciﬁc needs• Enabling Environment• Review and changes in exis ng regula ons, norms
and direc ves to make them gender sensi ve

Responsibility – State

Refers to prevailing rules and norms with respect to ownership, tenancy rights, tenurial rights and any other rules/ norms that are relevant to ensure inclusive DRM

1

Sub-Thema c
Area for DRR

Central / State Agencies and their Responsibili es

Social inclusion being a cross-cu ng Thema c Area for DRR relevant to all types of hazards and disasters, the responsibili es rest with every agency. However,for clarity the lead agencies relevant to each Sub-Themes have been men oned.

4.8 Responsibility Framework—Social Inclusion

NATIONAL DISASTER MANAGEMENT PLAN

83

84

2

Scheduled
Castes (SC)&
Tribes (ST)

Sub-Thema c
Area for DRR

MHA, NDMA,NIDM, MORD,MHUA, MHRD,
MOEF

Agencies withmajor roles:

MSJE, MTRA

Lead Agencies:

Centre (Lead
Agencies)• Guidance and support• Promote studies and research
on DRR challenges for SC
communi es• Promote studies and researchon disaster response andmi ga on strategies
appropriate and acceptable
to the tribal communi es• Review and amendment ofexis ng regula ons, norms
and direc ves to makethem consistent with needsof DRR• Guidance on preven ng,
checking and inves ga ng
discriminatory prac ces,
violence and abuse• Inter-agency support toprevent and stop traﬃcking• Support from central
ins tu ons for gendersensi ve psycho-social
support, post-disasterrehabilita on (economic,
social etc.)

Responsibility - Centre

SDMA, DMD$

Agencies withmajor roles:

DSJE, DTWD

Lead Agencies:

State (Lead
Agencies)
Responsibility – State• HRVCA – Risk Assessment to speciﬁcally include
SC/ST vulnerabili es (loca onal, exis ng
discriminatory prac ces, is any, crea ng hindrances
in DRR, access to informa on, access to risk
reduc on resources)• Protec ng the tribal iden ty, tradi ons andcustoms in post-disaster situa ons in diﬀerent
phases of DRR• Ensure steps taken for DRR do not cause
irreversible damage to the community’s culture,
tradi on, habitat and ecosystem• Use of Informa on and Data Management tosupport relevant issues - DDMA and SDMA

• Training, Awareness, Mock drills, Voca onal
Training / Skill development• Empowering, especially leadership in DRR• Curriculum Development with gender sensi ve
approach• Speciﬁc knowledge products• Promo ng insurance• Gender audit of DRR measures with the assistanceof the State Women's Commission• Ensure joint ownership in the name of husband andwife of houses reconstructed and assets provided
under post-disaster recovery assistanceCentral / State Agencies and their Responsibili es
NATIONAL DISASTER MANAGEMENT AUTHORITY

53

Children

MWCD, MHRD,
MOLJ, NCPCR

Lead Agencies:

Suppor ng
Agencies:
All Agencies
Associated with
DRR directly or
indirectly

Centre (Lead
Agencies)• Guidance and support forvarious DRR ini a ves forchildren• Review regulatory andins tu onal needs for the• Promote insurance/ risk
transfer• Guidelines, IEC, mass media
campaigns• Capacity development
guidelines• Inclusion of the concerns of
SC/ST about DRR in
curriculum development

Responsibility - Centre

DWCD, EDD, SCPS

Lead Agencies:

State (Lead
Agencies)
Suppor ng
Agencies:
All Agencies
Associated with
DRR directly or
indirectly• Convergence between concerned departments in
schemes meant for SC/ST for DRR• Shelters/ Temp Shelters/ Relief Camps – nondiscriminatory• Ensuring enabling environment for par cipa on• Review and amendment of exis ng regula ons,
norms and direc ves to address requirements ofimplemen ng DRR in SC/ST se lements (e.g.
retroﬁ ng, social housing, hazard resistantconstruc on)• Training, Awareness, Mock drills, Voca onal
Training / Skill development• Empowering, especially leadership in DRR• Curriculum development with focus on issues of
SC/ST communi es• Speciﬁc knowledge products• Promo ng insurance products/ campaigns• Include non-discriminatory implementa on of DRR
in Social audit• Make special arrangements for disaster
preparedness and safety of various children’s
ins tu ons53• Regulatory measures for ensuring school safety anddisaster preparedness in schools

Responsibility – State

This includes all private and public ins tu ons dedicated for children – foster care centers, kindergartens, pre -schools, facili es for care of children with special needs,orphanages, children's homes, shelter homes, etc. and all ins tu ons designated for the care and protec on of children under Juvenile jus ce system .

3

Sub-Thema c
Area for DRR

Central / State Agencies and their Responsibili es

NATIONAL DISASTER MANAGEMENT PLAN

85

4

86

Elderly

Sub-Thema c
Area for DRR

MHFW, MSJE

Lead Agencies:

All Agencies
Associated with
DRR directly or
indirectly

Suppor ng
Agencies:

MHA, NDMA,
NIDMCentre (Lead
Agencies)
Agencies withmajor roles:• Guidance and support toaddress DRR needs of theelderlyprotec on and safety ofchildren• Supervision and monitoringof DRR ini a ves for children– pre-school, school-goingand children not in school• Support for implemen ng
measures for proper
protec on and care ofdisaster aﬀected children• Mobilizing support todisaster-aﬀected children
from na onal andinterna onal agencies
working for children’s welfare• Guidance and support fromNCPCR for care andprotec on of children
immediately a er a disasterand during PDR

Responsibility - Centre

HFWD, DSJELead Agencies:

All Agencies
Associated with
DRR directly or
indirectly

Suppor ng
Agencies:

SDMA, DMD$, HD

State (Lead
Agencies)
Agencies withmajor roles:
Responsibility – State• Regular mock drills and other preparedness
measures in all schools and children’s ins tu ons• Pay special a en on to children’s ins tu ons
a er early warning and post-disaster• Ensure that in post disaster situa ons children do
not face isola on, anxiety, trauma, separated fromtheir families or parent(s)• Take adequate measures to prevent and st op childabuse and maintain strict vigil against child
traﬃcking• Take measures to prevent and stop child labour inpost disaster situa on• Sensi ze all agencies and key personnel associatedwith protec on of child rights and safety, including
those connected with juvenile jus ce such aspolice, CWC, JJB, CARA and DCPU
• Promote community-based care and protec on of
the aﬀected children.
• SCPS should ini ate steps to monitor post-disasterthreats to children and take counter measures
along with the nodal agency at the state/UT forchild rights and protec on• Sensi zing local communi es about addi onal
vulnerabili es of the elderly persons in thecommuni es and promote neighbourhood groups
or responsible individuals to assist the elderly

Central / State Agencies and their Responsibili es

NATIONAL DISASTER MANAGEMENT AUTHORITY

5

Persons
With
Disabili es(PWD)

Sub-Thema c
Area for DRR

MHFW, MSJE

Lead Agencies:

All Agencies
Associated with
DRR directly or
indirectly

Suppor ng
Agencies:

MHA, NDMA,
NIDMCentre (Lead
Agencies)
Agencies withmajor roles:• Guidance and support toaddress DRR needs of PWDs a
per global best prac ces• Promo ng awareness of the
DRR challenges for PWDs

• Promo ng awareness of thechallenges faced by theelderly in disasters• Promo ng agencies andorganisa ons working for thewelfare of the elderly todevelop exper se forsuppor ng DRR eﬀorts forthe elderly• Mobilizing support to theelderly in disaster-aﬀectedareas from na onal andinterna onal agencies
working for the wellbeing of
the elderly

Responsibility - Centre

DSJE

Lead Agencies:

All Agencies
Associated with
DRR directly or
indirectly

Suppor ng
Agencies:

SDMA, DMD$

Agencies withmajor roles:

State (Lead
Agencies)
Responsibility – State• Sensi zing local communi es about the PWD livingin the community and their special needs
par cularly during disasters• Promote neighbourhood groups assist PWD or
ensure a Personal Support Network consis ng of atleast three persons who are trusted for each PWD• Make special arrangements for disaster
preparedness and safety of various ins tu ons forthe elderly such as old age homes, re rement
homes and shelter homes for the elderly• Linking organisa ons working for the welfare ofelderly with community ini a ves for DRR• Preparing lists of all the elderly persons living
without adequate support, periodically reviewing
their situa on and check the status of social
network (neighbours, rela ves, friends) and otherarrangements for their support• In the risk season or a er early warnings, takemeasures to ensure that the elderly is informed andprepared• Involve elderly in disaster preparedness andplanning to the extent they can contribute• Assess medical and health support needs of theelderly in each area and maintain stocks of crucial
items• Special a en on to the protec on of property andassets of the elderly a er evacua on or postdisaster situa ons

Central / State Agencies and their Responsibili es

NATIONAL DISASTER MANAGEMENT PLAN

87

88

All Agencies
Associated with
DRR directly or
indirectly

Suppor ng
Agencies:

Agencies withmajor roles:
MHA, NDMA,
NIDMCentre (Lead
Agencies)• Promo ng agencies andorganisa ons working for thewelfare of PWDs to develop
exper se in DRR• Mobilizing support to the
PWDs in disaster-aﬀectedareas from na onal andinterna onal agencies
working for the wellbeing of
the PWDs• Encourage technologicalsupport and innova ons forthe beneﬁt of the PWDs in
DRR

Responsibility - Centre

All Agencies
Associated with
DRR directly or
indirectly

Suppor ng
Agencies:

State (Lead
Agencies)
Agencies withmajor roles:
SDMA, DMD$,
HFWD• Make special arrangements for disaster
preparedness and safety of various ins tu ons for
the PWD such as school for the blind, hostels for
PWD and any facili es dedicated to PWD• Linking organisa ons working for the welfare of
PWD with community ini a ves for DRR• Preparing lists of all PWD, periodically reviewing
their situa on and check the status of social
network (neighbours, rela ves, friends) and otherarrangements for their support• In an cipa on of a hazard or a er early warnings,
take measures to ensure that all PWDs are properly
informed and prepared• Involve PWDs in disaster preparedness andplanning as equal par cipants• Special a en on to the protec on of property andassets of the PWDs a er evacua on or postdisaster situa ons

Responsibility – State(*) Applicable only to cases where shelters are relevant . ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department
for disaster management, which is not the same in every state/UT.

Sub-Thema c
Area for DRR

Central / State Agencies and their Responsibili es
NATIONAL DISASTER MANAGEMENT AUTHORITYNATIONAL DISASTER MANAGEMENT PLAN

5

Mainstreaming
Disaster Risk Reduc on

5.1 BackgroundA disaster sets back development of the aﬀected region and at mes beyond, depending on its scale.
It can suddenly reverse decades or more of accumulated developmental gains. The impact can be
minimised or reduced signiﬁcantly if the aﬀected community had incorporated adequate risk
reduc on measures into the development. The losses to mul ple sectors of a disaster -aﬀected region
disrupts almost every sector of the economy and the quality of life of the people making it diﬃcult toa ain development goals set prior to the disaster because considerable expenditure must be madeon humanitarian assistance and for recovery. Investment in DRR is required for protec ng assets,
proper es, development opportuni es and outcomes against disasters. According to an UNDP
document every dollar invested into DRR could save seven dollars in disaster a ermath (UNDP 2012).
The process of development, and the kind of development choices made could enhance disaster risks- the exis ng or by crea ng new.
As per the provisions of the DM Act, all ministries, states, UTs, departments and agencies must havetheir own DM Plan. Unlike other components of a DMP, mainstreaming DRR must be incorporated
into the overall plans, policies and programs rather than as a subcomponent of the DMP. DRR must
become an integral part of every development plan and the DMP must provide indica ons how thatwill be accomplished in the DMP. At present there is, perhaps, some lack of clarity on this and thischapter provides both the perspec ve and a summary of how the prac ce of mainstreaming isevolving. Mainstreaming, by its very concept, is not a sub-component of a disaster-speciﬁc plan but
an approach that must be woven into all developmental plans to reduce risks from disasters.
Development without adequate incorpora on of DRR could worsen exis ng risks and has thelikelihood of introducing new risks, increasing the nega ve impact of poten al disasters. Extensive
and sound integra on of DRR into development can enhance disaster resilience, reduce losses andhasten the progress towards development goals. Thus, it is desirable that the development ini a ves
and DRR are dealt with concurrently in a seamless manner into all the relevant policies, planning andimplementa on. The climate change impacts act as risk mul pliers worsening uncertain es associatedwith almost every hydro-meteorological hazard. Therefore, all development ini a ves must factor in
the likelihood of greater risks and increase in climate change -induced vulnerabili es. This requires
incorpora on of risk management and climate adapta on as an intrinsic feature of all developmental
eﬀorts, especially in the areas where hazards are known to be high. Such an approach, whichinternalises DRR within development in a closely integrated manner is called mainstreaming DRR. It
means radically expanding and enhancing DRR so that it becomes a normal prac ce, fully
ins tu onalised within each agency’s regular planning and programmes in addi on to the
preparedness for disaster response.
For over two decades, there has been increasing a en on on the need to ‘mainstream’ disaster risk
reduc on into development. This prompted many na ons address risks from natural hazards within
their development frameworks in various ways and at diﬀerent levels - spanning the legisla ve,
ins tu onal, sectoral strategies and ﬁnancial planning (Benson and Twigg, 2007). Development do notnecessarily reduce disaster risk. It can unwi ngly create new risks or exacerbate the exis ng ones,
with disasters likely to be both a cause and a product of development. The experiences from across

89

NATIONAL DISASTER MANAGEMENT AUTHORITY

the world have highlighted the crucial importance of social inclusion in DRR. Social exclusion adversely
aﬀects both development and the capacity to cope with disasters. In addi on to the special emphasison making DRR socially inclusive, the mainstreaming of DRR must also make social inclusion one of the
intrinsic features.
The Oslo Policy Forum (2008) concluded that rather than reducing disaster risk, development
processes are in many cases giving rise to new forms of vulnerability impeding eﬀorts to reducepoverty and promote growth. ‘Win–win’ solu ons for securing sustainable development, reducing
poverty and strengthening hazard resilience therefore need to be explicitly and ac vely sought,
par cularly as climate change is likely to increase the extreme weather events (Benson and Twigg,2007). This process should take account of the impact of climate change on the intensity andfrequency of hydro-meteorological events in the future, as well as historical hazard records. The
recogni on of close linkages between development, disaster risk reduc on and global climate change
have resulted in all the major global frameworks having a shared emphasis on building resilience. The
concept of coherence and mutual reinforcement of the diverse ini a ves to achieve the na onal goals
and those of the major global frameworks has also emerged. Given the highly cross-sectoral nature ofthese challenges, it is evident that they are naturally inseparable and almost indis nguishable frommainstreaming.

5.2 Mainstreaming—Sub Thema c Areas for DRR
The strategic objec ve of mainstreaming is of ensuring that DRR within the ongoing development
ini a ves lead to integra on of DRR into poverty reduc on eﬀorts and sustainable socio -economic
development by covering all aspects – ins tu onal, legisla ve, judicial and development policies. The
key sub-thema c areas for mainstreaming DRR and crea ng the enabling environment for it emerging
from the global discussions are:
1.
2.
3.
4.
5.

Improving awareness and understanding of disaster risk
Enhanced legal support and be er disaster governanceEﬀec ve disaster risk transfer and risk management
Ensuring social inclusiveness in disaster risk management
Enabling coherence and mutual reinforcement of ini a ves under the major global
frameworks for enhancing disaster resilience
6. Ins tu onal arrangements and capacity development (ins tu onal, human, community,
technology, etc.) for DRR
7. Intra-government horizontal and ver cal integra on
8. Budget alloca ons for integra ng DRR concerns into development programs
9. Changes in project appraisal, scru ny of development plans, be er land-use regula ons,
insistence on mul ple hazard resilient infrastructure
10. Se ng targets, meframes, indicators and monitoring mechanisms
These broad themes need to be incorporated into the policies, plans and programs of government
agencies at all levels as an integral part of their general plans, while their DM Plans will provide an
outline or broad indica on of how it will be done. These are ideas and concepts that need to be
developed further in opera onal terms and all agencies must explore ways to incorporate
mainstreaming DRR in their regular planning and formula on of programmes.

90

NATIONAL DISASTER MANAGEMENT PLAN

5.3 Improving the Awareness and Understanding of Risk
Increasing the awareness of disaster risk, ways to reduce it as well as manage it is an importantelement of mainstreaming DRR. It may be noted in this context that the Sendai Framework emphasises
the role of improving the understanding and awareness of risk. The DRR policies and prac ces must
be based on improved understanding of disaster risk in all its dimensions and communi es madeaware of various aspects of disaster risk so that they are able to proac vely take preven ve measures.
Such awareness is most cri cally essen al on the part of key line agencies, local authori es andcommuni es in high-risk areas. Disaster risk has a cascading nature with decisions in one sector
poten ally changing disaster risk in another. Therefore, decision -makers across diverse sectors andlevels of government as well as the private sector and civil society also must recognise the importanceof considering disaster risk as an intrinsic part of all projects, programmes and ini a ves.

5.4 Legal Support and Disaster Governance
Adequate and appropriate legisla ve arrangements for disaster risk management, including themainstreaming of DRR into development, form a key component of an enabling environment. Revisionof land-use regula ons and building codes and introduc on of judicial and other measures will be
required to ensure enforcement. As a con nuous eﬀort, it is necessary to improve and strengthen
various laws having a bearing on DRR. DRR responsibili es must be explicitly incorporated in the du esof all branches of government. There is need to strengthen the ver cal and horizontal integra on of
DRR plans between diﬀerent levels of government, various line agencies and neighbouring local
bodies. What this implies is the integra on of DRR into all the norms, regula ons, approval andmonitoring rela ng to development through periodic reviews and amendments in addi on to thosespeciﬁc to disaster.

5.5 Disaster Risk Transfer
A comprehensive disaster risk management strategy, ac vely involving stakeholders at all levels ofgovernment as well as the private sector, local communi es and civil society, is required to implement
the legisla ve framework and to provide coordina on and monitoring mechanisms and arrangements.
Individual disaster risk reduc on ac ons and programs need to be located within this strategy, rather
than treated as discrete, individual measures. Moreover, the str ategy needs to indicate speciﬁc entry
points and mechanisms for mainstreaming disaster risk reduc on concerns into both the broader
development agenda and the design and implementa on of individual development ini a ves.
The emphasis now is on managing risks going beyond disaster and emergency management, whichtends to be concerned mainly with management of disaster events rather than risk. The risk
management processes are con nuous and embedded within the broader development framework.
There are various op ons for ﬁnancing disaster risk management, i.e., Disaster Risk Financing
Instruments (DFRI). DRFI are commonly classiﬁed as ex post (e.g., budget realloca ons, loan
conversa ons, borrowing) or ex ante (accumulated reserves, precau ona ry savings, con ngent credit,risk transfer/insurance). Insurance is a type of ex ante ﬁnancing, in which an at-risk party cedes all orsome of its risk exposure to a third party in return for a premium payment. However, none of theseare standalone or universal solu ons for DRR. For example, insurance is not a suﬃcient instrument
91

NATIONAL DISASTER MANAGEMENT AUTHORITY

for achieving eﬀec ve disaster risk management and disaster risk reduc on at a societal level. At -riskpar es, whether individuals, businesses or governments, must decide when insurance is appropriate
and what other tools to use when it is not. It must be noted that not all perils can be insured against.
Various risk ﬁnancing instruments must be integrated within an overall DRR strategy, enabling policies
and suppor ng legal framework.
The processes to facilitate and promote risk transfer involve iden fying aspects such as, a) various
layers of disaster risk, b) who bears each level of risk and c) possible risk transfer instruments available
to each layer (Le Quesne et al 2017). As part of risk layering, ﬁnancing instruments must be selectedbased on the frequency and severity of disasters. Risks with high frequency and low severity (e.g.,
ﬂoods) can be self-ﬁnanced by the insured party (government or aﬀected populace). Disaster reserve
funds or budgetary alloca on would be appropriate instruments in this case. On the other hand, risks
with low frequency and high severity are likely to cause extensive damage and should be transferred
to be er-equipped third par es. Integra ng risk transfer mechanisms into disaster risk informed
development is challenging for policy-making and planning.

5.6 Ensuring Social
Management

Inclusivenessin

Disaster

Risk

Importance of social inclusion for DRR was discussed earlier in considerable detail. Inclusive DRR is
about equality of rights, equal opportuni es and the dignity of the individual irrespec ve of social
background, community, age, gender or disability. Social inclusion is also a cross cu ng theme thatneeds to be an integral part of the mainstreaming eﬀorts. A detailed list of Sub-Thema c Areas for
DRR and responsibility framework has been provided in the chapter on social inclusion. Mainstreamingsocial inclusion in DRR must be based on the approach discussed in detail there and it is not necessary
to reiterate it here.

5.7 Enabling Coherence and Mutual Reinforcement of
Ini a ves under the Major Global Frameworks forEnhancing Disaster Resilience
The process of deﬁning the 2030 global agenda inevitably showed there is much to be gained fromaligning plans, targets, ac ons and indicators across the separate but interlocking agreements. It wasevident that there is signiﬁcant poten al for designing ﬁnancing mechanisms, policies andprogrammes that can deliver on more than one set of targets or frameworks. The very idea of
coherence and mutual reinforcement implies concerted and mutually suppor ng eﬀorts cu ng
across several ministries and sectors. The eﬀorts to achieve na onal goals under diﬀerent major glo bal
frameworks could be made to mutually reinforce each other, resul ng in cost -eﬀec ve, faster andeﬃcient implementa on. Given the way the ideas have emerged, coherence and mutual
reinforcement goes beyond the usual formal inter -agency coordina on to achieve common targets.
Instead, it heralds a new approach in which measures taken under one framework strengthens goals
in all the three frameworks. The three global frameworks and the importance of coherence andmutual reinforcement have been elaborated in a separate chapter. It is evident from the very natureof coherence and mutual reinforcement that it can be implemented only by making it integral to themainstreaming. To realise it, however, there is need to go beyond the conven onal coordina on and
92

NATIONAL DISASTER MANAGEMENT PLAN

planning mechanisms. From the perspec ve of DRR, some indica ve areas where a beginning can bemade are:
•

•
•
•
•
•
•

Improving the understanding of disaster risk – both natural and those introduced orincreased by developmental ac ons – in all its dimensions is an eﬀort that must be integral
to all development ini a ves by understanding risks in a broader sense, i.e., risks fromhazards and those newly created
Understand the cascading nature of risk, of how decisions in one sector alters disaster risk inanother in a cascading manner
Understand not only vulnerabili es from cascading risks, but also be er assess thecapabili es to resist, absorb, and accommodate risks
Recognise disaster risk as an intrinsic part of all projects, programmes and ini a ves (by all
decision-makers and at all levels – Govt., private sector and civil society)
Aligning the risk management approaches
Improving horizontal and ver cal integra on for DRR within government by making use ofdecision-making tools and informa on technology
Se ng targets, meframes, indicators and monitoring mechanisms to facilitate
consolida on of eﬀorts across sectors to enhance disaster resilience

5.8 Ins tu onal Arrangements and Capacity Development
for Disaster Risk Management
DRR is a crosscu ng responsibility that needs to be ‘owned’ by all government agencies rather thanby a single nodal department or agency designated for it. That requires the ins tu ons to explicitly
recognise the DRR requirements and pay a en on to implemen ng a dequate ins tu onal
arrangements required for addressing relevant accountability and responsibility concerns. The nodal
agencies at the na onal and state levels must provide leadership, determine broad disaster risk
management policies, oversee implementa on and advocate for the inclusion of disaster risk
reduc on concerns in broader development. The capacity development shall cover all aspects such as
ins tu onal, human, community and technology applica ons.

5.9 Intra-Government Coordina on and Integra on
Since there are mul ple line agencies, sectors and levels of administra on involved in development
ini a ves at na onal and state levels, mechanisms of inter -agency coordina on and integra on must
be strengthened to ensure that locally iden ﬁed needs are reﬂected in higher -level plans andstrategies. The inter-departmental and inter-ministerial coordina on or horizontal coordina on isimportant given the crosscu ng nature of DRR and the poten al implica ons of one agency ’s
decisions on another.

5.10 Budget Alloca ons
Integra on of disaster risk concerns into government budgets should be tackled from two angles,
ensuring that levels of public expenditure on risk reduc on are suﬃcient and that there are adequateﬁnancial arrangements to manage the residual risk. The presence of residual risk implies a con nuing
93

NATIONAL DISASTER MANAGEMENT AUTHORITY

need to develop and support eﬀec ve capaci es for emergency services, preparedness, response andrecovery, together with socioeconomic policies such as safety nets and risk transfer mechanisms, aspart of a holis c approach. While there are certain budgetary alloca ons to par ally address
requirements of relief (e.g., Na onal Disaster Response Fund, State Disaster Response Fund), themainstreaming of DRR requires each ministry, department and state/UT to make adequate provision
for DRR as an integral part of the main budget by ensuring that all the major ac vi es haveincorporated DRR.

5.11 Changes in Project Appraisal
DRR considera on must become part of the appraisal processes of various development projects toensure that development gains are sustainable and to ensure that DRR components and development
components of projects are mutually reinforcing. There are some examples of how development
projects have been implemented by properly recognising and without underes ma ng risks, thereby
avoiding the crea on of new risks (e.g., adequately factoring in seismicity, properly es ma ng
ﬂooding probabili es, ensuring restric ons against urban sprawl into industrial hazard-prone areas,
strengthening land-use regula ons by incorpora ng hazard risk adequately). The project evalua ons
at diﬀerent stages from concept stage to detailed project report for implementa on needs to be as
much informed by hazard likelihoods as possible. The project appraisals and EIA should include DRR
and climate change concerns a lot more systema cally than is usually done currently in many parts of
the world. Changes must be incorporated in the budget approval and ﬁnancial sanc oning procedures
employed by the Expenditure Finance Commi ee (EFC) and the Standing Finance Commi ee (SFC) tomake DRR evalua on mandatory.

5.12 Se ng Targets, Timeframes and Indicators
Capacity to monitor and evaluate disaster risk reduc on initia ves, generate hard evidence on related
inputs, outputs, results and impacts, and learn lessons for the future is an essen al component of theenabling environment for mainstreaming. Although mainstreaming is essen ally con nuous andpervasive, it is necessary to set targets to achieve DRR outcomes along with appropriate meframes,
responsibility frameworks and measurable indicators. Again, it must be recognised that all these apply
to all aspects and sectors of development and governance as mainstreaming will be an ongoing andunending process that would become more and more ghtly interwoven into all developmental
ini a ves. Nevertheless, given the fact that DRR mainstreaming had a very slow start, it is necessary
to proceed in a phased manner with the ini al phase focussing on how to incorporate it into the overallplans, followed by the se ng medium and long-term goals. Basically, the phasing should be consistent
with the priori es set in the NDMP in terms of short, medium and long-term goals. What needs to bedone by the centre, state and UTs are described in a broad manner in the chapter on the responsibility
framework for building disaster resilience.

5.13 Implementa on
Mainstreaming is the internalisa on of risk awareness and incorpora on of risk reduc on measures
into the main or the overall policies and programmes within and outside government. The NDMP can
only provide broad perspec ve on mainstreaming DRR. Each ministry, department, state and agencies
must review current programmes to include DRR to the extent possible cost eﬀec vely within their
94

NATIONAL DISASTER MANAGEMENT PLAN

main budget and ensure comprehensive appraisal of all new ini a ves (policies, plans, programmes,
projects, etc.) based on the perspec ves provided in the NDMP. DRR is a common theme amo ng thepost-2015 global frameworks and NDMP emphasises the beneﬁts of building coherence and mutual
reinforcement among all na onal eﬀorts associated with these frameworks, which involves many
elements going beyond the NDMP into the domain of larger developmental eﬀorts. The
implementa on of mainstreaming depends on how these considera ons have been woven into themain ac vi es as integral to them and not as separate components under the DMP of each. Therefore,
it should be noted that NDMP as a standalone document cannot provide details of how diﬀerent
central ministries and state governments will be mainstreaming DRR, which will be through ght
integra on of DRR in their respec ve main plans. The NDMP provides in diﬀerent sec ons and sub sec ons, Thema c Areas and Sub-Thema c Areas relevant to mainstreaming of DRR.

95

NATIONAL DISASTER MANAGEMENT AUTHORITY

96

NATIONAL DISASTER MANAGEMENT PLAN

Building Disaster Resilience– Responsibility Framework:

6

Part-A, Prelude

6.1 Introduc on
This chapter is essen ally a prelude to the detailed responsibility framework for realising DRR andbuilding resilience presented in the next chapter. This includes almost all aspects of pre -disaster risk
management. The complex and extensive nature of the tasks is summarised in this chapter and thedetailed responsibility framework described in the next chapter. The responsibility frameworkprovides a brief descrip on of ac ons, list of key agencies responsible from the centre and state andrelevant me frames. Four categories of me frames, running concurrently in most cases, are:
1)
2)
3)
4)

Recurring/ Regular (day-to-day)
Short Term (T1, ending 2022)
Medium Term (T2, ending 2027)
Long Term (T3, ending 2030)

It must always be understood that the me frames T1, T2, and T3 run concurrently in most cases andnot necessarily sequen ally. Of course, there will be some tasks which can begin only when certain
pre-requisites are sa sﬁed or can be implemented sequen ally in phases, while there are some whichmust be started at the earliest for it to be completed within the me frame . Many ac ons are ongoingand several are con nua on of those in previous version of NDMP. The goal is to implement as many
as possible by 2030. A star ng year is not men oned because many of the ac ons are ongoing andmany were stated in the previous version of the NDMP.
A er the paradigm shi from an approach to addressing disasters that weighed heavily on relief andresponse to a radically diﬀerent one based on DRR and prepa redness, there has been another major
shi , partly incremental and partly drama c, towards building disaster resilience. This global shi
centres on disaster risk management rather than disaster management. The principal features of thistrend are enhancing resilience through reducing risks, be er preparedness, systema c understandingof hazards, minimising the crea on of new risks as part of development, inves ng signiﬁcantly in DRR,
improving governance and mainstreaming DRR. The DM Act 2005 and the Na onal Policy 2009 had
made a paradigm shi towards proac ve disaster management by laying emphasis on long -term DRR.
The global frameworks – Hyogo (2005-15) and Sendai (2015-30) – signify calibrated shi towards
internalisa on of DRR and making it an integral part of development ini a ves.
The DMP explicitly and implicitly incorporates the coherence among the major post -2015 global
ini a ves, the corresponding na onal eﬀorts, new ini a ves of the government, an emphasis onsocial inclusion and the mainstreaming of DRR, i.e., making DRR an integral feature of development.
As men oned in Chapter-1, all these cons tute the ﬁve main pillars of NDMP (reiterated here for
con nuity):
I.
II.

Conforming to the na onal legal mandates – the DM Act 2005 and the NPDM 2009
Par cipa ng proac vely to realise the global goals as per agreements to which India is asignatory – Sendai Framework for DRR, SDGs and COP21 (Paris Agreement) – consistent with
the interna onal consensus for achieving mutual reinforcement and coherence of theseframeworks
97

NATIONAL DISASTER MANAGEMENT AUTHORITY

III.
IV.
V.

Prime Minister’s Ten Point Agenda for DRR ar cula ng contemporary na onal priori es
Social inclusion as a ubiquitous and cross-cu ng principle
Mainstreaming DRR as an integral featureThis chapter describes various Thema c Areas (TA) for DRR, the related Sub-Thema c Areas (sub-TA)
and the responsibility framework envisaged for implementa on. A major component of DRR,
undoubtedly, is various types of mi ga on measures. The DM Act 2005 deﬁnes "Mi ga on" asmeasures aimed at reducing the risk, impact, or eﬀects of a disaster or threatening disaster situa on. ”
Goal of mi ga on is to minimize risks from mul ple hazards and the threats from individual hazards
need not always occur in isola on. At mes, a hazardous event can trigger secondary events. For
example, an earthquake can produce a tsunami or may create ﬂooding or landslides. Similarly,
cyclones o en lead to ﬂooding and various other cascading events spread over an area wider than the
primary event. In addi on, demographics, nature of human se lements, and eﬀects of global climatechange can magnify the vulnerability of the communi es at risk. The DM Plan focuses on enhancing
the mi ga on capabili es for mul ple hazards, their likely cascading eﬀects.

6.2 Thema c Areas for DRR
The DMP, incorporates key principles enunciated in the DM Act, Na onal Policy, the three major post 2015 global frameworks, the PM’s Ten Point Agenda, a special focus on social inclusion and anemphasis on mainstreaming. The guiding principles of Sendai Framework states that disaster risk
reduc on requires responsibili es to be shared by diﬀerent divisions of governments and various
agencies. The eﬀec veness in disaster risk reduc on will depend on coordina on mechanisms within
and across sectors and with relevant stakeholders at all levels. For each hazard, the approach used inthis na onal plan incorporates into the planning framework the key themes enunciated in the Sendai
Framework and addi onal ones based on a broader approach to DRR elaborated earlier. These aregrouped under the following six Thema c Areas for DRR:
1.
2.
3.
4.
5.
6.

Understanding Risk
Inter-Agency Coordina on
Inves ng in DRR – Structural Measures
Inves ng in DRR – Non-Structural Measures
Capacity Development
Climate Change Risk Management

Separate chapters (3, 4, and 5) have been devoted to the discussion of three crosscu ng Thema c
Areas—a) coherence and mutual reinforcement for DRR of the post-2015 global frameworks, b) social
inclusion and c) mainstreaming DRR.

6.2.1

Understanding Risk

This Thema c Area focuses on understanding disaster risk, the Priority-1 in the Sendai Framework andthe integra on of numerous ac ons needed for strengthening disaster resilience. The Sub-Thema c
Areas are: a) Observa on Networks, Informa on Systems, Research, Forecas ng, b) Zoning/ Mapping,c) Monitoring and Warning Systems, d) Hazard Risk, Vulnerability and Capacity Assessment (HRVCA),
and e) Dissemina on of Warnings, Data, and Informa on. Having adequate systems to provide
warnings, disseminate informa on, and carry out meaningful monitoring of hazards are crucial to98

NATIONAL DISASTER MANAGEMENT PLAN

disaster risk reduc on, and improving resilience. They are also an integral part of improving theunderstanding of risk.

6.2.2

Inter-Agency Coordina on

Inter-agency coordina on is a key component of strengtheni ng the disaster risk governance - Priority2 of the Sendai Framework. The Sub-Thema c Areas for DRR are: a) Overall disaster governance b)
Response c) Providing warnings, informa on, and data and d) Non-structural measures. The central
ministries and agencies men oned are those vested with hazard-speciﬁc responsibili es by the Govt.
of India or those expected to play major roles in the thema c areas given in the responsibility
framework.

6.2.3

Inves ng in DRR – Structural Measures

Undertaking necessary structural measures is one of the thema c areas for DRR and enhancing
resilience. These consist of various physical infrastructure and facili es required to help communi escope with disasters. The implementa on of these measures is essen al to enhance disaster
preparedness, a component of Priority-4 of the Sendai Framework. It is also an important componentof inves ng in disaster risk reduc on for resilience, which is Priority-3 of Sendai Framework.

6.2.4

Inves ng in DRR – Non-Structural Measures

Sets of appropriate laws, mechanisms, and techno-legal regimes are crucial components instrengthening the disaster risk governance to manage disaster risk, which is Priority-2 of the Sendai
Framework. These non-structural measures comprising of laws, norms, rules, guidelines, and technolegal regime (e.g., building codes) provide the legal regime that facilitates mainstreaming disaster risk
reduc on into development ac vi es. It empowers authori es to enhance disaster resilience. The
central and state governments will have to set up necessary ins tu onal support for enforcement,
monitoring, and compliance.

6.2.5

Capacity Development

Capacity development is a recurring theme in all DRR eﬀorts. The Sendai Priority-2 (Strengthening DRR
governance to manage DR) and Priority-3 (Inves ng in DRR for resilience) are central to capacity
development. The capacity development includes training programs, curriculum development, large scale awareness crea on eﬀorts, and carryi ng out regular mock drills and disaster response exercises.
The capabili es to implement, enforce, and monitor various disaster mi ga on measures must be
improved at all levels from the local to the higher levels of governance. It is also strengthening the
DRR governance at all levels to be er manage risk and to make the governance systems more
responsive.

99

NATIONAL DISASTER MANAGEMENT AUTHORITY

6.2.6

Climate Change Risk Management

Climate change signiﬁcantly alters the geographic spread, frequency and intensity of hydrometrological extreme events. It can also exacerbate their impacts. Investments in DRR can play animportant role in suppor ng communi es to adapt to climate change. As the impacts of climatechange are increasingly felt, more ﬁnancial and technical resources will be needed to support
vulnerable people to adapt to the nega ve impacts. Planning for DRR must be informed by the likely
climate change impacts and scenarios. There are major knowledge and data gaps concerning climatechange impacts, impact scenarios and its eﬀects on various hydro-metrological hazards, which need
to be kept in mind while examining the me frames and ac ons listed under this Thema c Area for
DRR.

100

NATIONAL DISASTER MANAGEMENT PLAN

7

Building Disaster Resilience– Responsibility Framework:
Part-BThe complex and extensive nature of the task of building disaster resilience is presented in a concise
form in this chapter along with the necessary detailed responsibility framework. The previous chapter
provides a prelude to this chapter, which may be referred for brief discussion on the broader aspects
related to the subject of this chapter. Managing disaster risk and building resilience requires theinvolvement of mul ple agencies at diﬀerent levels from the local administra ve bodies andcommuni es to the central ministries, departments and agencies. Diﬀerent agencies must carry out
not only their own responsibili es but also work in a well-coordinated way with several others. For
the disaster risk management plans to succeed, it is necessary to iden fy various
stakeholders/agencies and clearly specify their roles and responsibili es. At all levels - from local tothe centre - the relevant authori es must ins tu onalise programmes and ac vi es at theministry/department levels and increase inter-ministerial and inter-agency coordina on andnetworking. They must also ra onalise and augment the exis ng regulatory framework andinfrastructure.
This chapter covers the hazards and disaster situa ons listed below:
1. Cyclone and Wind
2. Floods
3. Urban Floods
4. Seismic/ Earthquake
5. Tsunami
6. Landslides and Snow Avalanches
7. Drought
8. Cold Wave and Frost
9. Thunderstorm, Lightning, Dust, Squall and Strong Winds
10. Cloudburst and Hailstorm
11. Glacial Lake Outburst Flood (GLOF)
12. Heatwave
13. Chemical (Industrial) Emergencies
14. Nuclear and Radiological Emergencies
15. Biological and Public Health Emergencies (BPHE)
16. Fires
17. Forest Fire
The primary role of the central agencies in most disasters and emergencies is of providing various
types of support to the disaster-aﬀected State or the UT, usually in response to requests for assistance.
However, in certain disasters or when the situa on requires, the central agencies will play a pro -ac verole. In the domains of DM planning, preparedness, and capacity building, the central agencies will
constantly work for to upgrade the DM systems and prac ces as per global trends. For each hazard,
in the sub-sec ons that follow, themes for ac on are presented in a separate responsibility framework
for each of the six Thema c Areas (TA) for DRR and related Sub-Thema c Areas.

101

102

Observa on
Networks,
Informa on
Systems,
1
Monitoring,Research,
Forecas ng & Early
Warning

Cyclone and Wind
Sub-Thema c Area
for DRR
Centre#

MOES*, DOS,
MOST,
MOJS,
MEITY,NLRTI,
MOEFCC

7.1.1 Understanding Risk

7.1 Cyclone and Wind

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
Recurring/ Regular (RR)
• Promote research and studies – both inhouse and extra-mural by providing
research grants to researchers andins tu ons
Recurring/ Regular (RR)
• Studies on ecosystem and shorelinechanges• Support and coordina on• Promote availability in public domain• Sponsor studies, research andcyclone database and forecasts
documenta on
Short Term (T1)
DMD$, SDMA,• Promote studies on socio-economic
RD, SLRTI,• Enhancement of Observa onal Network
impacts of cyclone and wind hazards
DDMA, PRIs,
Sta ons (ONS)
Short Term (T1)ULBs
Cons tute State Level Coastal Advisory• Establishment of planned Automa cCommi ees as per need
Weather Sta ons (AWS) and Rain-Gauge
Medium Term (T2)
Network (RGN)
Studies on socio-economic on coping• Enhancement of a Doppler Weather Radarcapabili es and impacts
Network over coastal regions• Integra on of all ONS with AWS & RGN in
one single pla orm
Medium Term (T2)• Moderniza on of observa on network,
equipment, systems, technology

Understanding Risk

NATIONAL DISASTER MANAGEMENT AUTHORITY

MOES*,MOST,
MOEFCC,
MSJE, NLRTI,
NDMA,
NIDM

2 Zoning/ Mapping

Hazard Risk
Vulnerability and
3 Capacity
Assessment(HRVCA)

Centre#

MOES*, DOS,MOEFCC,
MOST, NLRTI

Cyclone and Wind
Sub-Thema c Area
for DRR

Understanding Risk
Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State• Establishment of at least one High Wind
Speed Recorder and one surge recorder foreach coastal district, vulnerable to cyclones• Aircra Probing of Cyclones
Long Term (T3)
• Land- and Ocean-based observa on
systems• Research and studies to improve forecasts• Augmenta on of high-resolu on ver calsoundings and DWR network• Airborne Doppler Weather Radar (ADWR)• Airborne Laser Terrain Mapp ing (ALTM)• Establish atmospheric observa onal
network complimented by mul -pla ormsatellite and aircra -based proﬁler
observa ons
Recurring/ Regular (RR)
Support the prepara on of detailed maps todelineate coastal wetlands, mangroves andSDMA, SLRTI,
Recurring/ Regular (RR)
shelterbelts and tracts for coastal bio-shields DDMA
Carry out the mapping and related studies
using best tools, ﬁeld studies, and satellite
data
Recurring/ Regular (RR)
Recurring/ Regular (RR)
• Promote studies, documenta on andUndertake HRVCA as part of preparing andresearch
SDMA, DDMA,
periodic revision of DM plans, and for$DMD,
SLRTI,
RD,
development planning• Studies on vulnerabili es and capaci es
DSJE, PRIs, ULBs
Short Term (T1)covering social, physical, economic,
Cons tute/ strengthen the mechanism s for
ecological, gender, social inclusion andconsulta on with experts and stakeholders
equity aspects

NATIONAL DISASTER MANAGEMENT PLAN

103

104

DMD$, SDMA, alldepts.

Recurring/ Regular (RR)
Systema c data management of data on
disaster damage and loss assessments
Short Term (T1)
Disaster Damage and Losses 2005-2015
baselineMHA*,
MOSPI, allministries/
depts.

Disaster Data
5 Collec on andManagement

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

DMD$, SDMA,
DDMA, RD,
DDMA, PRIs,
ULBs, IPRD

MOES*
MOIB, MEITY
MOST,
MCOM

Responsibility – State

Understanding Risk

Recurring/ Regular (RR)
• Dissemina on of warnings to all(including ﬁshermen), down to the last
mile – remote, rural or urban; Regular
updates to people in areas at risk
• Warnings using all types of op ons, typesof technologies, and media• Monitoring compliance by various
network operators and service providers
Short Term (T1)
Establishing seamless interface between
na onal and state networks
Medium Term (T2)
• Ensure facili es and infrastructure for the
implementa on of adequate access of
informa on to communi es at risk
• Deployment of communica on
equipment
Recurring/ Regular (RR)
Systema c data management of data on
disaster damage and loss assessments
Short Term (T1)
Disaster Damage and Losses 2005-2015
baseline

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#• Provide technical support and guidance forcomprehensive HRVCA

Dissemina on of
4 warnings, data,and informa on

Centre#Recurring/ Regular (RR)
• Quick, clear, eﬀec ve dissemina on among
central and state agencies• Deployment of communica on equipment• Warnings using all types of op ons, typesof technologies, and media• Providing weather informa on online andoﬄine and interface with mobile network
service• Providing warnings on radio, TV, and cell
phonesMedium Term (T2)
Facilita ng last-mile connec vity and accessto disaster risk informa on

Cyclone and Wind
Sub-Thema c Area
for DRR

NATIONAL DISASTER MANAGEMENT AUTHORITY

Overall disastergovernanceNon-structural
measures

DMD$,
SDMA, RD,
DDMA, PRIs,
ULBs

Recurring/ Regular (RR)
Providing coordina on, technical inputs, and support

Recurring/ Regular (RR)
Organising and coordina ng central assistance

MOES*,
MEITY,NDMA

DMD$,
SDMA, RD,
DDMA, PRIs,
ULBs

DMD$,
SDMA, RD,
DDMA, PRIs,
ULBs

DMD$,
SDMA, RD,
DDMA, PRIs,
ULBs

Responsibility – Centre

Recurring/ Regular (RR)
Eﬀec ve coordina on and seamless communica on
among central and state agencies to ensure quick,clear, eﬀec ve dissemina on of warnings,
informa on and data
Recurring/ Regular (RR)
Coordina on among central and state agencies for a)
MHA,revised/ updated rules, norms b) adop on of
NDMA, BIS
new/updated standards, c) enact/amend laws,
regula ons and d) adopt/ review policies

MHA

MOES*

Centre#Inter-Agency Coordina on
Responsibility – State
Recurring/ Regular (RR)
• Prepara on and implementa on of DM
plans and ensure the func oning ofagencies with DM tasks• All aspects of disaster risk management
and mainstreaming DRR• Ensuring coherence and mutual
reinforcement of DRR, CCA anddevelopment
Recurring/ Regular (RR)
• Organising and coordina ng theimmediate response• Coordinate with central agencies
Recurring/ Regular (RR)
Coordina ng the dissemina on of warnings
to all, down to the last mile – remote, ruralor urban; Regular updates to people in areas
at risk
Recurring/ Regular (RR)
Coordina on among state agencies for
ensuring updated norms/ codes and theirimplementa on, enforcement andmonitoring

Central/ State Agencies and their Responsibili esState#

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

4Warnings,
3 Informa on,
Data

2 Response

1

Cyclone and Wind
Sub-Thema c
Area for DRR

7.1.2 Inter-Agency Coordina on

NATIONAL DISASTER MANAGEMENT PLAN

105

106

Relevant Central
Ministries, MHA

NDMA, MHUA,
MOST

MORD, MHUA

Mul -Purpose
Cyclone Shelters

Social Housing
Schemes2

3

Centre#Establishment/
strengthening of
1
Emergency
Opera on Centres

Cyclone and Wind
Sub-Thema c
Area for DRR

Structural Measures
Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
Recurring/ Regular (RR)
Ensure round the clock
Recurring/ Regular (RR)$
opera ons of EOCs during
DMD , SDMA,
Ensure round the clock opera ons of EOCs during thethe Flood season with
ULBs, PRIs
ﬂood season with adequate human resources toadequate
respond to urban ﬂood
manpower/resources
Short Term (T1)
Iden ﬁca on of safe buildings and sites to serve as
temporary shelters for people and livestock evacuated
Recurring/ Regular (RR)
DMD$, SDMA,
from locali es at risk
RD, DDMA, PRIs,
Medium Term (T2)
Technical support
ULBs
Construc on of mul -purpose shelters in coastal
villages/habita ons prone to frequent cyclones
Long Term (T3)
Ensure compliance with relevant building codes
Short Term (T1)
Short Term (T1)
Review all housing schemes
Review all housing schemes to ensure that appropriate
to ensure that appropriate
mul -hazard safety norms, including cyclone-resistantmul -hazard safety norms,
features are incorporated in all social housing schemes
including cyclone-resistant$Medium Term (T2)
DMD , SDMA,
features are incorporated
DDMA, PRIs,• Ensure that mul -hazard, especially cyclone-resistantin all social housing
ULBs, DRD, UDD,
features are incorporated in planning and execu onschemesPRD
of social housing schemes• Ensure compliance with relevant building codes
Medium Term (T2)Long Term (T3)
Ensure that cycloneCarry out retroﬁ ng of social housing without mul resistant features arehazard, especially cyclone-resistant features
incorporated in planning

7.1.3 Inves ng in DRR – Structural Measures

NATIONAL DISASTER MANAGEMENT AUTHORITYNDMA, MHUA,
MOST

Centre#Recurring/ Regular (RR)
Guidance andimplementa on

DMD$, SDMA,
DDMA, PRIs,
ULBs

Recurring/ Regular (RR)
Collabora on with technical agencies andimplementa on

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – Stateand execu on of social
housing schemes
Long Term (T3)
Carry out retroﬁ ng of allsocial housing without
mul -hazard, especiallycyclone-resistant features

Structural Measures• Laws• Regula ons• Enforcement1mechanisms• Techno-Legalregimes

Cyclone and Wind
Sub-Thema c Area
for DRR

MOES,
MOEFCC,
DOS, BIS,
MFIN

Recurring/ Regular (RR)
• Guidance and Support• Oversight and monitoring of compliancewith coastal zone laws
Short Term (T1)
Review and Update relevant codes

Central/ State Agencies and their Responsibili es
Centre#Responsibility – Centre

7.1.4 Inves ng in DRR – Non-Structural Measures

State#
DMD$, SDMA,
RD,
Environment/
Forest Dept.,
DFIN
DMD$, CADA,
CZMA,

Responsibility – State
Recurring/ Regular (RR)
Ecologically sound land-use zona on
Regula ng aquaculture, and groundwater
extrac on
Strengthen land-use planning

Non-Structural Measures

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

Hazard resistantconstruc on,strengthening, and4 retroﬁ ng of all
lifeline structuresand cri cal
infrastructure

Cyclone and Wind
Sub-Thema c
Area for DRR

NATIONAL DISASTER MANAGEMENT PLAN

107

108

Public Private
Partnerships

3 Risk Transfer

2• Ins tu onal
Arrangements• Codes for disasterrisk reduc on• Compliancemonitoring

Cyclone and Wind
Sub-Thema c Area
for DRR

Recurring/ Regular (RR)
Promote coastal shelterbelts as amandatory component under na onal
aﬀoresta on programme

Recurring/ Regular (RR)
• Guidance and Support for Formula ng a
CWC, All
regulatory framework for ﬂood plain
ministries
zoning and ﬂood inunda on
andmanagement in cyclone-prone coastal
departments
areas• Promote risk insurance
MOES,
NDMA,
MCA*, MCF,
Recurring/ Regular (RR)
MOCI, MPFI, Guidance
MHIPE,MFIN
MFIN*,
Recurring/ Regular (RR)
NDMA,
Implementa on of Risk Transfer
MHA,
Arrangements including mul -hazard
MAFW
insurance for life and property

MOES,
MORD,
MOEFCC

Central/ State Agencies and their Responsibili es
Centre#Responsibility – Centre

Recurring/ Regular (RR)
Promote risk insurance
Short Term (T1)Cons tute task teams jointly with central
agencies for implemen ng land-use regula onas per zoning guidelines

Recurring/ Regular (RR)
Promote private par cipa on

Recurring/ Regular (RR)
Implementa on of Risk Transfer Arrangements
including mul -hazard insurance for life andproperty

DMD$, SDMA,
RD, DDMADFIN*, DMD$,
SDMA, DAG

Recurring/ Regular (RR)
All coastal states and UTs will undertake thespread, preserva on andrestora on/regenera on of bio -shields

Responsibility – State
Recurring/ Regular (RR)
Consider shoreline erosion, risk to structures,monitoring shoreline changes paying a en on
to the preserva on of natural barriers
Short Term (T1)
No ﬁca on of coastal zones for diﬀerent
purposes as per CRZ guidelines and techno-legal
framework of town and country planning rules;
enforcement and monitoring

DMD$, SDMA,
RD, DDMA,
IRD, PRIs,
ULBs

DMD$, Forest
Dept., UDD,
DRD, CZMA,
DDMA, PRIs,
ULBs
DMD$, SDMA,
RD, DDMA,
PRIs, ULBs,
Environment/
Forest Dept.

DDMA, PRIs,
ULBs

State#

Non-Structural Measures
NATIONAL DISASTER MANAGEMENT AUTHORITY

Central/ State Agencies and their Responsibili es
Centre#Responsibility – Centre
Short Term (T1)
Policy Framework
State#
Responsibility – State
Short Term (T1)
Policy Framework

Non-Structural Measures

Training

Curriculum
Development

1

2

MHFW, NLRTIMHRD, UGC,
NIDM, NLRTI

NDMA, NIDM,
NDRF, MYAS,
MOD

NIDM, NDMA,NLRTI, NDRF

Recurring/ Regular (RR)
Incorpora ng disaster response,
search and rescue in the training
programs of youth such as NCC,
NYKS, Scouts and Guides and NSS
Medium Term (T2)
Update curriculum forundergraduate engineeringcourses to include topics relevant
for cyclone Risk Management
Medium Term (T2)Introduc on of Crisis
Management, emergency medical

Recurring/ Regular (RR)
Training and orienta on programsfor central govt. staﬀ, SDRF, CDEF,
Community, Volunteers, and otherdirect stakeholders

Cyclone and Wind
Sub-Thema c Area Central/ State Agencies and their Responsibili es
for DRR
Centre#Responsibility – Centre

7.1.5 Capacity Development

Medium Term (T2)
Update curriculum for undergraduate
engineering courses to include topics
relevant for cyclone Risk Management
Medium Term (T2)Introduc on of Crisis Management,
emergency medical response/recovery and
HFWD, EDD

Responsibility – State
Recurring/ Regular (RR)
Training and orienta on programs for state
govt. staﬀ, and other direct stakeholders
such as: civil society, media-persons,elected representa ves, professionals forveterinary care and support to disasteraﬀected animals
Recurring/ Regular (RR)
Incorpora ng disaster response, searchand rescue in the training programs ofyouth such as village volunteers, protec onof disaster-aﬀected animals
EDD, Professional
Bodies and Councils inStates

DMD$, SDMA, DDMA,
RD, SIDM, ATI

DMD$, SDMA, DDMA,
RD, SIDM, ATI,
Technical Training
Ins tutes, SIRD, Police
Training Academies,
AHD

State#

Capacity Development

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

Cyclone and Wind
Sub-Thema c Area
for DRR

NATIONAL DISASTER MANAGEMENT PLAN

109

Cyclone and Wind
Sub-Thema c Area Central/ State Agencies and their Responsibili es
for DRR
Centre#Responsibility – Centre
response/recovery and trauma
management at Diploma /UG/ PG
levels for Health Professionals
Medium Term (T2)
CBSE
Introducing basic DM concepts incurriculum• Carry out mass media campaigns• Promote a tude and behaviourchange in the awarenesscampaigns/ IECLong Term (T3)
• Promote culture of disaster risk
NDMA, NDRF,
preven on, mi ga on, andAwareness
3
CAPF, NIDM,
be er risk management
Genera on
MOES• Promote use of insurance/ risk
transfer• Promote Community Radio• Strengthening network of civilsociety organiza ons forawareness genera on about
DRR and DM
Recurring/ Regular (RR)
NDMA, NDRF,
Promote planning and execu on
4 Mock Drills/ Exercises
MOD, CAPF
of emergency drills by all
ministries and in all States/UTs
NDMA, NIDM,
Recurring/ Regular (RR)
Voca onal Training/ MSDE, NSDA,
Promo ng skill development for5
Skill Development
NSDC, IIE,
mul -hazard resistant construc on
NIESBUD,in cyclone-prone areas for

110

DMD , SDMA, DDMA,
RD, SLSDA$

DMD$, SDMA, RD,
DDMA, SDRF, F&ES,
CDEF, Police

State Educa on Boards

State#

Recurring/ Regular (RR)
• Conduct training programmes• Crea ng ToT teams for diﬀerent trades
relevant to cyclone-resistant construc on

Recurring/ Regular (RR)
Joint planning and execu on of emergency
drillsMedium Term (T2)Introducing basic DM concepts incurriculum
Recurring/ Regular (RR)
• Carry out mass media campaigns• Promote a tude and behaviour change
in the awareness campaigns/ IECLong Term (T3)
• Promote culture of disaster risk
preven on, mi ga on, and be er risk
management• Promote use of insurance/ risk transfer• Promote Community Radio• Strengthening network of civil society
organiza ons for awareness genera on
about DRR and DM• Informa on on care and protec on ofdisaster-aﬀected animals

Responsibility – State
trauma management at Diploma /UG/ PG
levels for Health Professionals

Capacity Development
NATIONAL DISASTER MANAGEMENT AUTHORITY

Recurring/ Regular (RR)
Promo on, Guidance, and Support

MSJE, MWCD,
NDMA, NIDM

NDMA, NIDM,
NDRF, MOD,CAPF, MORD,
MHUACommunity-Based
7 Disaster
Management

Responsibility – State

Recurring/ Regular (RR)
Incorporang gender sensi ve and
DMD$, SDMA, DSJE,
equitable approaches in capacity
RD, SIDM, ATI, DDMA,
development covering all aspects of
PRIs, ULBs
disaster management at the state, district,and local levels
Recurring/ Regular (RR)
Training for PRI, SHG, NCC, NSS, youth,
DMD$, SDMA, RD,
local community organiza ons
DDMA, SIDM, ATI, PRIs,
Short Term (T1)ULBsStrengthen ability of communi es tomanage and cope with disasters based on amul -hazard approach

State#

Capacity Development

Research,
Forecas ng, Data
1
Management,
Zoning, Mapping

Cyclone and Wind
Sub-Thema c
Area for DRR

MOES*, DOS,
MOST, MOEFCC,
MAFW, NDMA,NLRTICentre#7.1.6 Climate Change Risk Management

Recurring/ Regular (RR)
Promote studies and research on climatechange-related risks and adapta on
op ons

DMD$, SDMA, RD,
AGD., AHD, FIHD,
WRD, EFD, SLRTIResponsibility – State
Recurring/ Regular (RR)
• Support na onal risk reduc on
eﬀorts related to GACC
• Coordina on with central agencies• Sponsor and promote state-specificeﬀorts and local eﬀorts for GACC
mi ga on and adapta on

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Climate Change Risk Management

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

Recurring/ Regular (RR)
Incorpora ng gender sensi ve andequitable approaches in capacity
development covering all aspects
of disaster management

Empowering women,
marginalised
6 communi es, andpersons withdisabili es

Cyclone and Wind
Sub-Thema c Area Central/ State Agencies and their Responsibili es
for DRR
Centre#Responsibility – Centre
MMSME,
diﬀerent types of housing and
NLSDA
infrastructure

NATIONAL DISASTER MANAGEMENT PLAN

111

112

Hazard Risk
Vulnerability and
2 Capacity
Assessment(HRVCA)

Cyclone and Wind
Sub-Thema c
Area for DRR

MOES*, NIDM,
MOEFCC, NLRTICentre#Short Term (T1)
• Develop GACC impact scenarios thathave bearing on cyclonic ac vity andsea surges• Studies on GACC driven ecosystem andshoreline changes• Assess enhanced risks (economic,
social, etc.) under diﬀerent GACC
impact scenarios• Carry out risk zona on/mapping ofclimate change impacts consideringvarious sea-level rise and shorelinechange scenarios• Research studies on mutual coherence
and mutual reinforcement of GACC andrisk management along the coastLong Term (T3)
• Develop Data base management
system for GACC impacts• Develop forecas ng model for risks
from GACC and its likely impacts
Long Term (T3)
• Assess the changes in risk, vulnerability
and capaci es under GACC impact
scenarios• Assess GACC risks of vulnerable andmarginalised sec ons• Provide technical support and guidancefor comprehensive HRVCA considering
GACC impacts
DMD$, SDMA, RD,
EFD, AGD, FIHD,WRD DDMA, PRIs,
ULBs, SLRTIResponsibility – StateLong Term (T3)
• Promote state-speciﬁc studies onvulnerabili es, capaci es and risks
under GACC impact scenarios• Assess GACC risks of vulnerable andmarginalised sec ons

Medium Term (T2)Document state-speciﬁc GACC impacts
and coping mechanisms
Long Term (T3)
• Promote state-speciﬁc studies onenhanced risks (economic, social,etc.) under diﬀerent GACC impact
scenarios• Promote research studies with State
speciﬁc contexts on GACC andconsequent changes in hazards

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Climate Change Risk Management
NATIONAL DISASTER MANAGEMENT AUTHORITY

•
•
•

•

MOES*, MOST,•
DOS, MOJS, MAFW,
MOEFCC•

Centre#Medium Term (T2)
Understanding CCA needs
Study GACC coping mechanisms
Develop CCA mechanisms
Long Term (T3)
Promote appropriate combina onsof Green and Blue infrastructure
approach
Support the implementa on GACC
adapta on programs
Promote adap ve measures in social
protec on programmes for thevulnerable groups
DMD$, SDMA,
EFD*, RD,
Agriculture Dept.,
WRD DDMA, PRIs,
ULBs

Responsibility – State
Recurring/ Regular (RR)
• Sensi sa on and awareness crea on• Support na onal CCA eﬀorts• Coordina on with central agencies• Sponsor and promote state-speciﬁc
eﬀorts and local eﬀorts for GACC
mi ga on and adapta on
Medium Term (T2)
Develop local adapta on strategies andpilot projects
Long Term (T3)
• Sponsor and promote state-speciﬁc
eﬀorts and local eﬀorts• Promote appropriate combina ons ofGreen and Blue infrastructure
approach• Implementa on of GACC adapta on
programs• Integrate adap ve measures in social
protec on programmes for thevulnerable groups

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Climate Change Risk Management

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

Climate Change
3 Adapta on(CCA)

Cyclone and Wind
Sub-Thema c
Area for DRR

NATIONAL DISASTER MANAGEMENT PLAN

113

114

Observa on
Networks,
Informa on
Systems,
1
Monitoring,Research,
Forecas ng &Early Warning

Flood
Sub-Thema c
Area for DRR

MOES ,MOJS/CWC*,
MAFW, DOS,MEITY, NLRTI*Centre#7.2.1 Understanding Disaster Risk

7.2 Flood

Recurring/ Regular (RR)
Assessment, Monitoring, and Scien ﬁc studies
Short Term (T1)
• Prepara on of close contour and ﬂood vulnerability
maps• Modernisa on of ﬂood forecas ng and warning
systems on a river basin basis• Assist states/UTs in the iden ﬁca on of priority ﬂood
protec on and drainage improvement works• Monitoring of ﬂood preparedness, river basin andreservoir management plans
Medium Term (T2)
• Studies and monitoring of rivers ﬂowing fromneighbouring countries• Studies involving interna onal coopera on forforecas ng and cross border issues• Implementa on of the schemes for real- me
collec on of hydro-meteorological data on important
rivers including the relevant rivers ﬂowing from
Nepal, Bhutan and China• Specialized eﬀorts for diﬀerent types of ﬂoods andcauses of ﬂooding, including cloudburst
DMD$, IRD.,
WRD,
SDMA,
DDMA,
SLRTI, PRIs,
ULBs

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Responsibility – State
Recurring/ Regular (RR)
• Support and cooperate withcentral agencies• Sponsor state-speciﬁc eﬀorts;
support local eﬀorts for ﬂood
management• Support local informa on
systems and update data forbe er ﬂood management
Short Term (T1)
• Implemen ng and monitoring of
ﬂood preparedness, river basin
and reservoir management plansincluding upda ng rule curves,
improve system of water releasefrom reservoirs• Iden ﬁca on of priority ﬂood
protec on and drainage
improvement
Medium Term (T2)
Studies on land use andhydrological changes relevant toﬂood management in river basins
and reservoir command areas

Understanding Disaster Risk

NATIONAL DISASTER MANAGEMENT AUTHORITY

Short Term (T1)
• Studies on support systems for people living in ﬂood
prone areas• Evolving designs of shelters in ﬂood prone areas• Socio-economic impacts of ﬂood
Medium Term (T2)
• River basin studies• Studies on ﬂood related problems such as soil losses
caused by ﬂooding of rivers, sediment transport, rivercourse changes, and appropriate use ofembankments• Promote research and studies – both in-house andextra-mural by providing research grants toresearchers and ins tu ons
Long Term (T3)
• Hydrological and morphological studies before
undertaking major ﬂood control or preven on
measures

MOJS, DOS,
MOST, NLRTI,
Brahmaputra
Board, Ganga
Flood Control
Commission

Research andDevelopment

3

Short Term (T1)
Prepara on of large-scale hazard maps of ﬂood
prone areas iden fying areas of highvulnerability

Responsibility – Centre
Long Term (T3)
• Developing/ improving/ upda ng forecas ng
methods and models for quan ﬁca on of inﬂows andstorage of dams

Recurring/ Regular (RR)
• Support and cooperatewith central agencies• Sponsor state-speciﬁc
eﬀorts; support local
eﬀorts

DMD$, IRD,SLRTI,
WRD,
SDMA,
DDMA,
PRIs, ULBs

DMD$, IRD,
WRD,
SDMA,
DDMA,
SLRTI

Recurring/ Regular (RR)
• Support and cooperate withcentral agencies• Sponsor/ carry out state-speciﬁc
eﬀorts in all these areas; support
local eﬀorts

Responsibility – StateLong Term (T3)
Execu on of ﬂood protec on anddrainage improvement schemes

Understanding Disaster Risk
State#

Central/ State Agencies and their Responsibili es

MOJS*, DOS,NLRTICentre#Zoning, mapping,
2 and classiﬁca on
ﬂood prone areas

Sub-Thema c
Area for DRR

Flood

NATIONAL DISASTER MANAGEMENT PLAN

115

116

NDMA, NIDM,
MOJS, MOST,
MSJE, NLRTI

MOES, MOJSMEITY, MCOM,
MOIB, MEA
NDMA, DOS

Dissemina on of
5 warnings, data,and informa on

Centre#Hazard Risk
Vulnerability and
4 Capacity
Assessment(HRVCA)

Flood
Sub-Thema c
Area for DRR

DMD$,
SDMA,
DDMA, RD,
IRD, DSJE

DMD$,
SDMA, RD,
IRD, WRD,
IPRD,
DDMA,
PRIs, ULBs

Recurring/ Regular (RR)
Quick, clear, eﬀec ve dissemina on among central andstate agencies
Short Term (T1)
• Facilitate the distribu on of necessarycommunica on equipment, last-mile connec vity
and access to disaster risk informa on• Interna onal coopera on to share warnings about
rivers ﬂowing from neighbouring countries• Promo ng reliable networking systems for data andinforma on sharing among central and state agencies• Monitoring of landslides and blockages in rivers• Warning systems• Providing informa on in all possible ways and using
all types of media• Interface with mobile network service
providers for warnings•••

Recurring / Regular (RR)
Promote studies, documenta on and researchStudies on vulnerabili es and capaci es coveringsocial, physical, economic, ecological, gender,social inclusion and equity aspects
Provide technical support and guidance forcomprehensive HRVCA

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#• Developing/ upda ng forecas ng methods andmodels for quan ﬁca on of inﬂows and storage ofdams

Recurring/ Regular (RR)
Undertake HRVCA as part ofpreparing and periodic revision of
DM plans
Short Term (T1)Cons tute/ strengthen themechanisms for consulta on withexperts and stakeholders
Recurring/ Regular (RR)
• Inter-state data and informa on
sharing where applicable• Coordina on and coopera onwith the central agencies• Ensure facili es andinfrastructure for the
implementa on of adequate
access to communi es at risk
• Dissemina on of warnings to all,down to the last mile – remote,rural or urban; Regular updates
to people in areas at risk
• Warnings using all types of
op ons, types of technologies,
and media• Monitoring compliance byvarious network operators andservice providers

Responsibility – State

Understanding Disaster Risk
NATIONAL DISASTER MANAGEMENT AUTHORITYMHA , MOSPI, allministries/ depts.

*

Centre#Short Term (T1)
Disaster Damage and Losses 2005-2015 baseline

Recurring/ Regular (RR)
Systema c data management of data on disasterdamage and loss assessments
DMD$,
SDMA, alldepts.

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Responsibility – State
Recurring/ Regular (RR)
Systema c data management ofdata on disaster damage and loss
assessments
Short Term (T1)
Disaster Damage and Losses 20052015 baseline

Understanding Disaster Risk

Overall disastergovernance

2 Response

1

Flood
Sub-Thema c
Area for DRR

MHA

MOJS

Centre#7.2.2 Inter-Agency Coordina on

DMD$, SDMA,
RD, IRD,
DDMA, PRIs,
ULBs

DMD$, SDMA,
RD, IRD,
DDMA, PRIs,
ULBs

Recurring/ Regular (RR)
Providing coordina on, technical inputs, andsupport

Recurring/ Regular (RR)
Organising and coordina ng central assistance

Responsibility – State
Recurring/ Regular (RR)
• Prepara on and implementa on of DM
plans and ensure the func oning ofagencies with DM tasks• All aspects of disaster risk management
and mainstreaming DRR• Ensuring coherence and mutual
reinforcement of DRR, CCA anddevelopment
Recurring/ Regular (RR)
• Organising and coordina ng theimmediate response• Coordinate with central agencies

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Inter-Agency Coordina on

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

Disaster Data
6 Collec on andManagement

Flood
Sub-Thema c
Area for DRR

NATIONAL DISASTER MANAGEMENT PLAN

117

118

MHA, BIS,
NDMA

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
Recurring/ Regular (RR)
Recurring/ Regular (RR)
Eﬀec ve coordina on and seamless communica on DMD$, SDMA, Coordina ng the dissemina on of warnings
among central and state agencies to ensure quick,
RD, DDMA,
to all, down to the last mile – remote, ruralclear, eﬀec ve dissemina on of warnings,
PRIs, ULBs
or urban; Regular updates to people in
informa on and data
areas at risk
Recurring/ Regular (RR)
Recurring/ Regular (RR)
Coordina on among central and state agencies for
DMD$, SDMA, Coordina on among state agencies fora) revised/ updated rules, norms b) adop on ofRD, DDMA,
ensuring updated norms/ codes and their
new/updated standards, c) enact/amend laws,
PRIs, ULBs
implementa on, enforcement andregula ons and d) adopt/ review policies
monitoring

Inter-Agency Coordina on

Centre#Flood control measures such as
1 construc on of embankments
and levees

Recurring/ Regular (RR)
Ensure round the clock opera ons ofEOCs during the Flood season withadequate manpower/resources

Structural Measures
Responsibility – State
Recurring/ Regular (RR)
Ensure round the clock opera ons of
DMD$, SDMA,
EOCs during the ﬂood season with
ULBs, PRIs
adequate human resources to respondto urban ﬂood
Short Term (T1)
Iden ﬁca on suitable sites for
DMD$, SDMA, RD, temporary shelters for people and
DDMA, PRIs, ULBs livestock evacuated from locali es atrisk

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#MOJS, NWDA,
Recurring/ Regular (RR)CWPRS, CBRI,Technical support and studies
SERC, IE(I)

Relevant
Establishment/ strengthening of Central
Emergency Opera on Centres
Ministries,
MHA

Sub-Thema c Area for DRR

Flood

7.2.3 Inves ng in DRR – Structural Measures

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

Non-structural
measures

MOJS, IMD,
DOS, MEITY,
NDMA

Warnings,
3 Informa on,
Data

4

Centre#Flood
Sub-Thema c
Area for DRR

NATIONAL DISASTER MANAGEMENT AUTHORITY

3 Mul -purpose Flood Shelters

5Enhancing the safety of dams
and reservoirs
MOJS

Recurring/ Regular (RR)
Advisories and guidance

Waterways and drainage
MRTH, MOD,
Recurring/ Regular (RR)
4 systems for roads, highways, and
NHAI, BRO
Proper alignment and design
expressways

NDMA, MOJS,
NBCC,
Recurring/ Regular (RR)
BMTPC, CBRI, Advisory
SERC, IE(I)Responsibility – State
Medium Term (T2)
• Construc on of mul -purpose
shelters in villages/ habita ons
prone to ﬂoods• Proper monitoring and maintenanceof river embankments

Structural Measures

Medium Term (T2)
Ensure availability of shelters,
DMD$, SDMA, RD,
undertake proper maintenance, and
DDMA, PRIs, ULBs
make arrangements to support thepeople shi ed to temporary shelters
Recurring/ Regular (RR)$
DMD , SDMA, RD, Coordina on and coopera on with the
SPWD, DDMA,
central agencies and ensure proper
PRIs, ULBs
alignment and design in all state
projects
Recurring/ Regular (RR)
• Carry out measures to increasesafety, reduce risks from ﬂooding
DMD$, SDMA,• Undertake pre- and post-monsoon
DDMA, RD, IRD,
inspec ons of dams and reservoirs
WRD• Monitor the implementa on ofsafety enhancements in accordancewith norms

Medium Term (T2)
Recurring/ Regular (RR)
DMD$, SDMA, RD, Ensure that ﬂood -resistant features
Ensure that ﬂood-resistant features are
DRD, UDD, PRD,
are incorporated in the planning andincorporated in planning and execu on
DDMA, PRIs, ULBs execu on of social housing schemes inof social housing schemes
ﬂood prone areas

2 Social Housing Schemes

Centre#Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Relevant
CentralGovernment
Ministries,
MORD,
MHUA

Sub-Thema c Area for DRR

Flood

NATIONAL DISASTER MANAGEMENT PLAN

119

120

Recurring/ Regular (RR)
Implementa on as per norms

Recurring/ Regular (RR)
DMD$, SDMA, RD,
Collabora on with technical agencies
DDMA, PRIs, ULBs
and implementa on

IRD, WRD, SDMA,
DDMA, PRIs, ULBs

Responsibility – State

Structural Measures

Centre#IMD, DOS,
MOJS, NWDA,
DOS, MFIN

Sub-Thema c Area for DRR• Regula on and enforcement oflaws, norms, regula ons,
guidelines including
1 • Regula on for reservoir
management• Integrated Water Resources
Management (IWRM)

Flood

7.2.4 Inves ng in DRR – Non-Structural Measures
Non-Structural Measures
Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
Recurring/ Regular (RR)
Recurring/ Regular (RR)
• Implemen ng land-use• Guidance and Support
regula on for low lying areas as• Oversight and monitoring of
per ﬂood control norms
compliance with coastal zone laws
DMD$, IRD,
• Regula on of inhabita on of lowWRD, SDMA,• Promote ins tu onal mechanisms
lying areas along the rivers, nallas
for sharing forecasts, warnings, data, DDMA, RD,and drains
DFIN
and informa on• Implemen ng ﬂood management
Short Term (T1)
ac on plan
• Adop on of revised reservoir• Support and cooperate with
opera on manuals
central agencies; Sponsor state-

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

NDMA, NBCC,
BMTPC, CBRI,
SERC, IE(I), all
Recurring/ Regular (RR)
relevant
Guidance and implementa on
Ministries/
Departments

Hazard resistant construc on,strengthening, and retroﬁ ng
7of all lifeline structures andcri cal infrastructure

Recurring/ Regular (RR)
Advisories and guidanceCentral/ State Agencies and their Responsibili es
Responsibility – Centre
State#MOJS

Centre#Desil ng/ dredging of rivers to
improve ﬂow; drainage
6 improvement; ﬂoodwater
diversion through exis ng or
new channels

Sub-Thema c Area for DRR

Flood

NATIONAL DISASTER MANAGEMENT AUTHORITY• Wetland conserva on andrestora on
MOEFCC

NDMA, MOJS,MHUA, BIS

Regula ons to promote ﬂood
2 resilient buildings andinfrastructure

3

Centre#Sub-Thema c Area for DRR

Flood

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
speciﬁc eﬀorts; support local• Regulatory framework for ﬂood plaineﬀorts; Cooperate with central
zoningeﬀortsand ﬂood inunda on management
Short Term (T1)
Medium Term (T2)•
Enforcingbuilding codes and• Scheme of incen ves andregula ons
disincen ves with respect to thecentral assistance to encourage the• Review and modiﬁca on ofstates for implemen ng ﬂood plain
opera on manuals for all majorzoning regula ons
dams/ reservoirs• Norms/ regula ons applicable to• Preven on and removal ofbuildings in ﬂood-prone areas
encroachment into theLong Term (T3)
waterways and natural drainage
Facilitate the implementa on of IWRM
systems
in major river basins and their subMedium Term (T2)basins• Implemen ng regulatory
framework for ﬂood plain zoning
and ﬂood inunda on
management• Implemen ng ﬂood plain zoning
regula ons
Long Term (T3)
Implementa on of IWRM in majorriver basins and their sub-basins
within each state/UTDMD$,
Medium Term (T2)
Recurring/ Regular (RR)
SDMA,
Revise and implement the relevant
Guidance and Support
DDMA, RD,
rules in ﬂood prone areas
Local bodies
Recurring/ Regular (RR)
SDMA,
Guidance and Support
DDMA,

Non-Structural Measures

NATIONAL DISASTER MANAGEMENT PLAN

121

122

5 Risk Transfer

Non-Structural Measures
Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
Short Term (T1)$
DMD , RD,
Discourage reclama on of
EFD, Local
wetlands, natural depressions
bodiesMedium Term (T2)
Ac on plan managing wetlands andnatural drainage systems for ﬂood
modera on
Long Term (T3)
Implementa on of watershedmanagement including catchment
area treatment and aﬀoresta on
programmes$
DMD ,Recurring/ Regular (RR)
Recurring/ Regular (RR)
SDMA,
Promote private par cipa on in
Guidance
DDMA, RD,
disaster management facili es
DDMARecurring/ Regular (RR)
Recurring/ Regular (RR)
Implementa on of Risk Transfer
Implementa on of Risk Transfer
Arrangements including mul Arrangements including mul -hazard
DFIN*, DMD$,
hazard insurance for life andinsurance for life and property
SDMA, DAG
property
Short Term (T1)
Short Term (T1)
Policy Framework
Policy Framework

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

MFIN*, NDMA,MHA, MAFW

4 Public Private Partnerships

Centre#NDMA, MOJS,MCA*, MCF,
MOCI, MPFI,MHIPE, MFIN

• Catchment Area
Treatment/Aﬀoresta on

Sub-Thema c Area for DRR

Flood

NATIONAL DISASTER MANAGEMENT AUTHORITY

2

Curriculum
Development

1 Training

Flood
Sub-Thema c Area
for DRR
Centre#

MHFW

Health Department

Professional Bodies/Councils

Recurring/ Regular (RR)
Strengthen coverage of ﬂood
damage mi ga on, ﬂood tolerant
designs/ crops, and construc ontechniques

MHRD, AICTE, IITs,
UGC, NIDM,
Professional Bodies/Councils

Recurring/ Regular (RR)
Improve coverage of community
health and epidemic management
medical curriculum

DMD$, SDMA, SIDM,
ATI DDMA, PRIs, ULBs

DMD$, SDMA, DDMA,
SDRF, ATIs,
Engineering Training
Ins tutes, SIRD, Police
Training Academies

NDRF, CAPF, MYAS,
MOD

Recurring/ Regular (RR)
Training and orienta on programsfor central govt. staﬀ, SDRF, CDEF,
community, and volunteers

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Recurring/ Regular (RR)
Incorpora ng disaster response,
search and rescue in in the training
programs of youth such as NCC,
NYKS, Scouts and Guides, NSS,
SDRF, CDEF, Community,
Volunteers

NIDM, LBSNAA, NIRM,
NDMA, NDRF, NISA,
and other training
ins tu ons for Indian
Civil Services

7.2.5 Capacity Development

Responsibility – State
Recurring/ Regular (RR)
• Training and orienta on programsfor state govt. staﬀ, professionals
for veterinary care and support todisaster-aﬀected animals• Training for CDEF, community, andvolunteers
Recurring/ Regular (RR)
• Incorpora ng disaster response,
search and rescue in in the training
programs of youth such as village
volunteers, and for protec on ofdisaster-aﬀected animals• Training for CDEF, Community,
Volunteers
Medium Term (T2)
Update curriculum forundergraduate engineering courses
to include topics relevant for ﬂood
Risk Management
Medium Term (T2)Introduc on of Crisis Management,
emergency medical
response/recovery and trauma
management at Diploma /UG/ PG
levels for Health Professionals

Capacity Development

NATIONAL DISASTER MANAGEMENT PLAN

123

124

Awareness
Genera on

Voca onal
5 Training/ Skill
Development

Mock Drills/
4
Exercises

3

Flood
Sub-Thema c Area
for DRR

NDMA, NIDM, MOJS,Line Ministries, Govt.
Agencies,
NDRF, Armed Forces,
CAPF
NDMA, NIDM, MSDE,
NSDA, NSDC, IIE,NIESBUD, MMSME,NLSDA

NDMA, NDRF, CAPF,
NIDM, MOJSCentre#CBSE

Recurring/ Regular (RR)
Promo ng skill development formul -hazard resistant construc on

Recurring/ Regular (RR)
Promo ng the planning andexecu on of emergency drills by all
ministries and in all States/UTs

Recurring/ Regular (RR)
• Carry out mass media campaigns• Promote culture of disaster risk
preven on, mi ga on, andbe er risk management• Promote a tude and behaviourchange in the awarenesscampaigns/ IEC• Strengthening network of civilsociety organiza ons forawareness genera on about DRR
and DM
Medium Term (T2)
• Promote use of insurance/ risk
transfer• Promote Community Radio

Include awareness about ﬂood andsome aspects of ﬂood managementin school and college teaching
while reviewing the curriculum

DMD$, SDMA, DDMA,
RD, SLSDA

DMD$, SDMA, RD,
WRD, IRD, SDRF, F&ES,
CDEF, Police, DDMA,
PRIs, ULBs

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Boards of Educa on
Recurring/ Regular (RR)

Recurring/ Regular (RR)
• Conduct training programmes

Recurring/ Regular (RR)
Joint planning and execu on of
emergency drills

Recurring/ Regular (RR)
• Carry out mass media campaigns• Promote culture of disaster risk
preven on, mi ga on, and be errisk management• Promote a tude and behaviourchange in the awarenesscampaigns/ IEC• Strengthening network of civilsociety organiza ons for awarenessgenera on about DRR and DM• Informa on on care and protec onof disaster-aﬀected animals
Medium Term (T2)
• Promote use of insurance/ risk
transfer• Promote Community Radio

Recurring/ Regular (RR)
Improving curriculum periodicallyusing new technologies

Responsibility – State

Capacity Development
NATIONAL DISASTER MANAGEMENT AUTHORITYNDMA, NIDM, MORD,
MHUACommunity-Based
7 Disaster
Management

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – Statein ﬂood-prone areas for diﬀerent• Develop a team of Trainer-oftypes of housing and infrastructure
Trainers for diﬀerent trades
relevant to ﬂood-resistantconstruc on
Recurring/ Regular (RR)
Recurring/ Regular (RR)
DMD$, SDMA, RD,
Incorpora ng gender sensi ve andIncorpora ng gender sensi ve and
SIDM, ATI, and other
equitable approaches in capacity
equitable approaches in capacity
state-level ins tu ons, development covering all aspects ofdevelopment covering all aspects
DDMA, PRIs, ULBs
disaster management at the state,of disaster management
district, and local levels
Recurring/ Regular (RR)
• Strengthen ability of communi es
to manage and cope with disasters
Recurring/ Regular (RR)
DMD$, SDMA, RD,
based on a mul -hazard approach
Promo on, Guidance, and Support DDMA, PRIs, ULBs
• Training for PRI, SHG, NCC, NSS,
Youth, local community
organiza ons

Capacity Development

Research, Forecas ng /Early Warning, Data
1
Management, Zoning,
Mapping

Flood
Sub-Thema c Area for
DRR
MOES, MOJS*,MAFW,MOEFCC, DOS

Centre #7.2.6 Climate Change Risk Management

Recurring/ Regular (RR)
Assessment, Monitoring, and Scien ﬁcstudies

DMD$, EFD, IRD,
WSD*, SDMA, AGD,
FIHD, DDMA, PRIs,
ULBs

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State

Responsibility – State
Recurring/ Regular (RR)
• Support na onal risk reduc on
eﬀorts related to GACC
• Coordina on with central
agencies

Climate Change Risk Management

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

MSJE, MWCD, NDMA,
NIDMCentre#Empowering
women,
6 marginalised, andpersons withdisabili es

Flood
Sub-Thema c Area
for DRR

NATIONAL DISASTER MANAGEMENT PLAN

125

FloodSub Thema c Area for
DRR
Centre#Central/ State Agencies and their Responsibili es
Responsibility – Centre
State
Short Term (T1)
• Flood vulnerability maps under GACC
scenarios• Assessing GACC eﬀects on catchments
and river basins including trends overpast decades.
• Assess enhanced economic and social
risks under GACC scenarios
Medium Term (T2)
• Study GACC-related changes in therivers ﬂowing from trans-boundary
rivers• Develop Database management systemrela ng to climate change impact on
ﬂoods• Prepare GACC scenario maps for all
river systems• Enhanced risks from GACC and on
adapta ons to changeLong Term (T3)
• Improve the ﬂood forecas ng
capabili es consistent with thean cipated GACC impacts on ﬂoodprone areas• Coordinate with all neighbouring
countries to understand and monitor
GACC impacts on major rivers
associated with or ﬂowing fromneighbouring countries

126• Sponsor and promote statespeciﬁc eﬀorts and local eﬀorts
for GACC mi ga on andadapta on
Medium Term (T2)Document state-speciﬁc GACC
impacts and coping mechanisms
Long Term (T3)
• Promote state-speciﬁc studies
on enhanced risks (economic,
social, etc.) under diﬀerent
GACC impact scenarios• Promote research studies with
State speciﬁc contexts on GACC
and consequent changes inhazards

Responsibility – State

Climate Change Risk Management
NATIONAL DISASTER MANAGEMENT AUTHORITYNIDM, MOJS*,
MOST, MOST,
CSIR, DOSDSTMOES*,
MOEFCC*,
MOST, DOS,
MOJS, MSJEDST (es)

Climate Change
3 Adapta on(CCA)

Centre#Hazard Risk
Vulnerability and2Capacity Assessment(HRVCA)

Flood
Sub-Thema c Area for
DRR

Short-Term (T1)
• Understanding adapta on needs• Study coping mechanisms• Develop GACC adapta on mechanisms
Medium & Long Term (T2, T3)• Implement GACC adapta on programs• Promote appropriate combina ons ofGreen and Blue infrastructure
approach• Promote adap ve measures in social
protec on programmes for thevulnerable groups

SDMA, IRD/WRD*,
EFD, DRD, DSJE,
DDMA, PRIs, ULBs

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State
Medium Term (T2)
• Improve the understanding of theenhanced vulnerabili es ofcommuni es in ﬂood-prone areas toextreme hydro-clima c events• Assess GACC risks of vulnerable andState / UT, SDMA,
marginalised sec ons
DMD$, RD, Irriga on• Provide technical support and guidanceDept. / WRD
for comprehensive HRVCA considering
GACC impacts
Long Term (T3)
Undertakedetailedstudiesonvulnerability and risk under GACC
scenarios along the coast

Recurring/ Regular (RR)
• Sensi sa on and awarenesscrea on• Support na onal CCA eﬀorts• Coordina on with central
agencies• Sponsor and promote statespeciﬁc eﬀorts and local eﬀorts
for GACC mi ga on andadapta on
Medium Term (T2)
Develop local adapta on
strategies and pilot projects
Long Term (T3)
• Sponsor and promote statespeciﬁc eﬀorts and local eﬀorts

Recurring/ Regular (RR)
• Undertake HRVCA as part ofpreparing and periodic revisionof DM plans• Develop strategies for structuraland non-structural measures
based on HRVCA
Medium Term (T2)
Assess GACC risks of vulnerable
and marginalised sec ons

Responsibility – State

Climate Change Risk Management

NATIONAL DISASTER MANAGEMENT PLAN

127

128

Centre #Central/ State Agencies and their Responsibili es
Responsibility – Centre
State

Responsibility – State• Implementa on of GACC
adapta on programs• Promote appropriate
combina ons of Green and Blueinfrastructure approach• Integrate adap ve measures insocial protec on programmes
for the vulnerable groups

Climate Change Risk Management

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal dep artment fordisaster management, which is not the same in every state/UT.

Flood
Sub-Thema c Area for
DRR

NATIONAL DISASTER MANAGEMENT AUTHORITY

Centre#MHUA*,
MOES, MOJS,DOS

Urban Flooding
Sub-Thema c Area for
DRR

Mapping/ Zoning,Es ma on of Possible
1
Inunda on levels,
monitoring networks

7.3.1 Understanding Disaster Risk

7.3 Urban FloodCentral/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Recurring/ Regular (RR)
Technical support
Short Term (T1)
• Develop guidelines for assessment of poten al
and actual damages to be done separately• MOES (IMD) to priori ze the establishment in
consulta on with State Governments• Establish satellite-linked Automa c Rain Gauge
Sta ons, Automa c Weather Sta ons for 24X7
DMD$, SDMA,
weather monitoring
RD, SRSAC,
Medium Term (T2)
DDMA, PRIs
• Maximize real- me hydro-meteorological(peri-urban),network to cover all urban centres
ULBs• MOES (IMD) and MHUA to work out a strategic
expansion of DWR network across the country tocover all urban centres
Long Term (T3)
Ward Level Informa on System to be developed
using high resolu on satellite images/ aerial photos
integrated with socioeconomic data covering
natural resources and infrastructure facili es onappropriate scale at community level

Recurring/ Regular (RR)
• Develop land use planning
based on mul -hazard disasterrisk assessment• Place land-use planning maps inpublic domain• Undertake adequate studies,
evalua ons, and planningconsidering land use constraints
to prevent ﬂooding• Coordinate with the central
agencies and implement
recommenda ons• Undertake HRVCA as part ofpreparing and periodic revisionof DM plans• Ward level assessment• Cons tute/ strengthen themechanisms for consulta on
with experts and stakeholders

Responsibility – State

Understanding Disaster Risk

NATIONAL DISASTER MANAGEMENT PLAN

129

130

Disaster Data Collec onand Management
MHA*, MOSPI,
all ministries/
depts.

Short Term (T1)
Disaster Damage and Losses 2005-2015 baseline

Recurring/ Regular (RR)
Systema c data management of data on disasterdamage and loss assessments

Recurring/ Regular (RR)
• Promote studies, documenta on and research• Studies on vulnerabili es and capaci es coveringsocial, physical, economic, ecological, gender,social inclusion and equity aspects• Provide technical support and guidance forcomprehensive HRVCA

Recurring/ Regular (RR)
Regular monitoring
Medium Term (T2)
Establishing technical umbrella for urban ﬂood
forecas ng and warning

DMD$, SDMA,
all depts.

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Recurring/ Regular (RR)
Systema c data management ofdata on disaster damage and loss
assessments
Short Term (T1)
Disaster Damage and Losses 20052015 baseline

Responsibility – State
Short Term (T1)State Urban Flood Disaster
Management Informa on System
Medium Term (T2)
Set up EOCs by the ULBs
connected to the ARG network
Long Term (T3)
Develop capaci es to makequan ta ve forecasts andsimulate inunda on levels undervarious scenarios

Understanding Disaster Risk

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

4

NDMA, NIDM,
MSJE

MOES, MOJSInforma on Systems,
Monitoring,
Forecas ng, Early
2 Warning

Hazard Risk
Vulnerability and3Capacity Assessment(HRVCA)

Centre#Urban Flooding
Sub-Thema c Area for
DRR

NATIONAL DISASTER MANAGEMENT AUTHORITY

Non-structural
measures

MHUA, BIS,
NDMA

Recurring/ Regular (RR)
Organising and coordina ng central assistance

DMD$, SDMA,
RD, DDMA,ULBs, PRIs
(peri-urban)

DMD$, SDMA,
RD, DDMA,ULBs, PRIs
(peri-urban)

DMD$, SDMA,
RD, DDMA,ULBs, PRIs
(peri-urban)

Recurring/ Regular (RR)
Eﬀec ve coordina on and seamless
communica on among central and state agencies
to ensure quick, clear, eﬀec ve dissemina on of
warnings, informa on and data
Recurring/ Regular (RR)
Coordina on among central and state agencies fora) revised/ updated rules, norms b) adop on of
new/updated standards, c) enact/amend laws,
regula ons and d) adopt/ review policies

DMD$, SDMA,
RD, DDMA,ULBs, PRIs
(peri-urban)

Recurring/ Regular (RR)
Providing coordina on, technical inputs, andsupportResponsibility – State
Recurring/ Regular (RR)
• Prepara on and implementa on of DM
plans and ensure the func oning ofagencies with DM tasks• All aspects of disaster risk management
and mainstreaming DRR
Recurring/ Regular (RR)
• Organising and coordina ng theimmediate response• Coordinate with central agencies
Recurring/ Regular (RR)
Coordina ng the dissemina on of
warnings to all, down to the last mile –remote, rural or urban; Regular updates topeople in areas at risk
Recurring/ Regular (RR)
Coordina on among state agencies for
ensuring updated norms/ codes and theirimplementa on, enforcement andmonitoring

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Inter-Agency Coordina on

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

4

MOES* (IMD),MOJS, MOES,
NDMA, MEITY

Warnings,
3 Informa on,
Data

MHUA

MHUA

Overall disastergovernanceCentre#2 Response

1

Urban Flooding
Sub-Thema c
Area for DRR

7.3.2 Inter-Agency Coordina on

NATIONAL DISASTER MANAGEMENT PLAN

131

132

Relevant
CentralMinistries,
MHA

NDMA, NBCC,
BMTPC, CBRI,
SERC, IE(I)

1 Civil Works

Establishment/
strengthening
2 of Emergency
Opera onCentresHazard3 resistantconstruc on,

Centre#MHUA*,
MCVA, NBCC,
BMTPC, CBRI,
SERC, IE(I),CRRI

Sub-Thema c
Area for DRR

Urban Flooding

Guidance andimplementa on

Ensure round the clock
opera ons of EOCs
during the Floodseason with adequate
manpower/ resources

Recurring/ Regular (RR)

• City Bridge Design
Considera ons• City Road Level
Design• Technical Support

Responsibility –Centre7.3.3 Inves ng in DRR – Structural Measures

SDMA, DDMA,
ULBs, PRIs
(peri-urban)

DMD$, SDMA,ULBs, PRIs
(peri-urban)

DMD$, UDD,ULBs, PRIs
(peri-urban)

State#

Medium Term (T2)
Collabora on with technical agencies and implementa on

Recurring/ Regular (RR)
Ensure round the clock opera ons of EOCs during the ﬂood season
with adequate human resources to respond to urban ﬂood

Short Term (T1)
All road re-levelling works or strengthening/ overlay works to be
carried out by milling the exis ng layers of the road so that the roadlevels will not be allowed to increase
Medium Term (T2)
• Upgrade the exis ng drainage and storm water systems• Managing drainage systems• Protec on of Water Bodies• Ensure protec on of Water Bodies and its restora on/ revival
Long Term (T3)
• Bus and Metro Terminals, Railway sta ons and Airports to be madeﬂood-proof by providing eﬃcient drainage for a much higher rainfall
intensity• All future road and rail bridges in ci es crossing drains to be designed
such that they do not block the ﬂows resul ng in backwater eﬀect• Remove encroachments and take strict ac on against theencroachers as per the byelaws/ regula ons

Responsibility – State

Central/ State Agencies and their Responsibili es

Structural Measures
NATIONAL DISASTER MANAGEMENT AUTHORITY

Centre#Responsibility –CentreState#
Responsibility – State

Central/ State Agencies and their Responsibili es

Structural Measures

MHUA

MHUA

MHUA

Prepara on of Storm
2 Water Drainage System
Inventory

Opera on and
3 Maintenance of Drainage
Systems

Centre#Prepara on ofcomprehensive Urban
1
Storm Drainage Design
Manual (USDDM)

Urban Flooding
Sub-Thema c Area for
DRR

Non-Structural Measures
Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
Medium Term (T2)
MHUA will consider current interna onal DMD$,
Recurring/ Regular (RR)
prac ces, speciﬁc loca ons and rainfall
SDMA,
Take ini a ves and collaborate withpa ern of the ci es and future needs for DDMA, UDD central agencies
preparing USDDMLong Term (T3)
MHUA, in consulta on with States/UTs
DMD$,
Long Term (T3)and ULBs promote storm water drainage SDMA,
Coordinate with MHUA in preparing theinforma on system based on best
ULBs, PRIs
inventory through ULBs
technologies available integra ng spa al (peri-urban)
and non-spa al data
DMD$,
Recurring/ Regular (RR)
Recurring/ Regular (RR)
SDMA,
Provide guidelines, and carry out
Adequate budget to be provided to take
ULBs, PRIs
monitoringcare of the men, material, equipment and(peri-urban)

7.3.4 Inves ng in DRR – Non-Structural Measures

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

strengthening,
and retroﬁ ng
of all lifeline
structures andcri calinfrastructure

Sub-Thema c
Area for DRR

Urban Flooding

NATIONAL DISASTER MANAGEMENT PLAN

133

134

Environmental Impact
Assessment

7

Public Private
Partnerships

Cons tu on of Urban
6 Flooding Cell for
Integrated UFDM

• Techno-Legal Regime
5 • Land use planning• City/Town Planning

4

Urban Flooding
Sub-Thema c Area for
DRR

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – Statemachinery for O&M of drainage systems
on a periodic basis
Short Term (T1)$
DMD ,Ensure strict compliance with the
Short Term (T1)
SDMA,
guidelines and land-use planning consistent
Issue guidelines to State/UT for making*
MOEFCC , MHUAULBs, EFD,
with sound storm water management
storm water drainage concerns a part of
PRIs (periMedium Term (T2)
all EIA norms
urban)
Minimise loss of ecologically important
areas and natural wetlands
Short Term (T1)
• Ensure strict compliance of Techno-Legal
Regime especially of land use throughRecurring/ Regular (RR)
ULBs
• Coordinate the eﬀorts of the States for• Strengthen land-use planning
DMD$,
compliance with Techno-Legal Regime
Medium Term (T2)SDMA,
MHUA, MFIN
by all the ULBs in their respec ve• Incorporate water sensi ve urban design
ULBs, PRIs
Statesconsidera ons into land use planning(peri-urban)• Technical guidance to strengthen land • Incorporate the topography and speciﬁc
use planningterrain elements such as hilly, coastal,etc. in the land use plan to minimise
ﬂooding allowing free ﬂow of storm
water along natural contours
Short Term (T1)
Recurring/ Regular (RR)
Nodal Department to cons tute Urban
DMD$,
MHUA
Lead role in the establishment of the
Flooding Cell at State level and a DM Cell
SDMA, UDD
technical umbrella at the na onal level
to be cons tuted at the ULB level for
managing urban ﬂooding at local level
UDD,
Long Term (T3)
NDMA, MHUA,Long Term (T3)
SDMA,
Promote private par cipa on in disaster
MCA*, MCF,
Guidance and model regula ons
DDMAmanagement facili es
Centre#Non-Structural Measures
NATIONAL DISASTER MANAGEMENT AUTHORITYDFIN*,DMD$,
SDMA, DAG

Responsibility – State

Recurring/ Regular (RR)
Implementa on of Risk Transfer
Arrangements including mul -hazard
insurance for life and property
Short Term (T1)
Policy Framework

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Recurring/ Regular (RR)
Implementa on of Risk Transfer
MFIN*, NDMA, Arrangements including mul -hazard
MHA, MAFW
insurance for life and property
Short Term (T1)
Policy Framework

Centre#
MOCI, MPFI,MHIPE, MFIN

Non-Structural Measures

1

Educa on andTraining

Urban Flooding
Sub-Thema c
Area for DRRMHUA*, MHRD,
MHFW, NDRF,
NIDM, CBSE,
MYAS

Centre#7.3.5 Capacity Development

Medium Term (T2)Introduce UFDM modules in school
ULB, PRIs (pericurricula through CBSE
urban), SDRF
Support to training of SDRF, CDEF,
community, and volunteers

Capacity Development
Responsibility – State
Recurring/ Regular (RR)
Trainings for urban ﬂood rescue andmanagement for CDEF, community,
volunteers and others
Short Term (T1)
• Upgrade equipment and skills of F&ES for
UFDM• Enlist professionals for veterinary care andsupport to disaster-aﬀected animals
Medium Term (T2)State Governments will encourage theirschool boards to develop similar content intheir school curriculum

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

8 Risk Transfer

Urban Flooding
Sub-Thema c Area for
DRR

NATIONAL DISASTER MANAGEMENT PLAN

135

136

3

5

4

Documenta on

2

Empowering
women,
marginalised, andpersons withdisabili es
CommunityBased Disaster
Management

Awareness
Genera on

Urban Flooding
Sub-Thema c
Area for DRRMHUA*, MORD*,
NDMA, NIDMMWCD*, MSJE,
NDMA, NIDMNIDMMHUA*, NDMA,NDRF, CAPF,
NIDM

Centre#Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
Recurring/ Regular (RR)
Recurring/ Regular (RR)
• Carry out mass media campaigns
•
Carry
out
mass media campaigns• Promote culture of disaster risk
• Promote culture of disaster risk preven on,
preven on, mi ga on, andmi ga on, and be er risk management
be er risk management
Medium Term (T2)
Medium Term (T2)
• Promote a tude and behaviour change in• Promote a tude and behaviour
DMD$, SDMA, RD,
the awareness campaigns/ IECchange in the awareness
DDMA, SDRF, F&ES,
campaigns/ IEC
CDEF, Police, ULB,
• Promote use of insurance/ risk transfer
PRIs (peri-urban)• Promote use of insurance/ risk
• Promote Community Radiotransfer• Strengthening network of civil society• Promote Community Radio
organiza ons for awareness genera on
about DRR and DM• Strengthening network of civilsociety organiza ons for• Informa on on care and protec on ofawareness genera on about DRR
disaster-aﬀected animals
and DM
Recurring/ Regular (RR)
Recurring/ Regular (RR)
Ensure accurate documenta on of
DMD$, SDMA, RD,
Ensure accurate documenta on of all aspects
all aspects of disaster events for
DDMA, ULB, Stateof disaster events for crea ng good historicalcrea ng good historical records for
ATI
records for future research and Risk
future research and Risk
Management planningManagement planning
Short Term (T1)
Short Term (T1)
DMD$, SDMA,
Incorpora ng gender sensi ve andIncorpora ng gender sensi ve and equitable
DDMA, RD, SIDM,
equitable approaches in capacity
approaches in capacity development covering
ATI, and other state development covering all aspects
all aspects of disaster management at thelevel ins tu onsof disaster management
state, district, and local levels$
DMD , SDMA, SDRF,
Recurring/ Regular (RR)
RD, DDMA, ULB,
Promo on, guidance, support, training for
SIDM
CDEF, community, volunteers

Capacity Development
NATIONAL DISASTER MANAGEMENT AUTHORITYMHUA, NDMA, All
Govt. Ministries/
Agencies,
NDRF, Armed
Forces, CAPF

Centre#Recurring/ Regular (RR)
Promo ng the planning andexecu on of emergency drills by all
ministries and in all States/UTs

Recurring/ Regular (RR)
Promo on, Guidance, and Support,
Training for CDEF, Community,
Volunteers

DMD$, SDMA, RD,
DDMA, ULB, SDRF,
F&ES, CDEF, Police

Recurring/ Regular (RR)
Joint planning and execu on of emergency
drillsResponsibility – State
Short Term (T1)
Strengthen ability of communi es to manage
and cope with disasters based on a mul hazard approach
Medium Term (T2)
Training for RWA, SHG, NCC, NSS, Youth,
Ward Commi ees, local community
organiza ons

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Capacity Development

Centre#
MOES, MOJS*,MAFW,MOEFCC, DOS,
NLRTI

Urban Flooding
Sub-Thema c Area for
DRR

Research, Forecas ng /Early Warning, Data
1
Management, Zoning,
Mapping

7.3.6 Climate Change Risk Management

Recurring/ Regular (RR)
Assessment, Monitoring, and Scien ﬁcstudies
Short Term (T1)
• Flood vulnerability maps under GACC
scenarios

DMD$, IRD, WSD*,
EFD, SDMA, AGD,
FIHD, DDMA, ULBs,
PRIs (peri-urban)

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Responsibility – State
Recurring/ Regular (RR)
• Support na onal risk reduc on
eﬀorts related to GACC
• Coordina on with central
agencies• Sponsor and promote statespeciﬁc eﬀorts and local eﬀorts

Climate Change Risk Management

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

6

Mock Drills/
Exercises

Urban Flooding
Sub-Thema c
Area for DRR

NATIONAL DISASTER MANAGEMENT PLAN

137

Centre#

NIDM, MOJS*,
MOST, MOST,
CSIR, DOS,
NLRTI

Urban Flooding
Sub-Thema c Area for
DRR

2 Hazard Risk Vulnerability
and Capacity Assessment(HRVCA)

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
for GACC mi ga on and• Assessing GACC eﬀects on catchments
adapta on
and river basins including trends overMedium Term (T2)past decades
Document state-speciﬁc GACC
• Assess enhanced economic and social
impacts and coping mechanisms
risks under GACC scenariosLong Term (T3)
Medium Term (T2)
• Promote state-speciﬁc studies on• Study GACC-related changes in the rivers
enhanced risks (economic, social,
ﬂowing from trans-boundary riversetc.) under diﬀerent GACC
• Develop Database management system
impact scenarios
rela ng to climate change impact on•
Promote research studies withﬂoodsState speciﬁc contexts on GACC
• Prepare GACC scenario maps for all riverand consequent changes insystems
hazards• Enhanced risks from GACC and on
adapta ons to changeLong Term (T3)
• Improve the ﬂood forecas ng
capabili es consistent with thean cipated GACC impacts on ﬂoodprone areas• Coordinate with all neighbouring
countries to understand and monitor
GACC impacts on major rivers associatedwith or ﬂowing from neighbouring
countries
Recurring/ Regular (RR)
Medium Term (T2)
DMD$, SDMA, RD,• Undertake HRVCA as part of• Improve the understanding of the
IRD, WRD, SLRTI
preparing and periodic revision
enhanced vulnerabili es of communi esof DM plans

Climate Change Risk Management
NATIONAL DISASTER MANAGEMENT AUTHORITY

138

3 Climate Change
Adapta on(CCA)

Urban Flooding
Sub-Thema c Area for
DRR

MOES*, MOST,
DOS, MOJS,
MOEFCC*

Centre#Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – Statein ﬂood-prone areas to extreme hydro• Develop strategies for structural
clima c eventsand non-structural measures• Provide technical support and guidance
based on HRVCA
for comprehensive HRVCA considering
Medium Term (T2)GACC impacts
Assess GACC risks of vulnerable
and marginalised sec ons• Assess GACC risks of vulnerable andmarginalised sec ons
Long Term (T3)
Undertake detailed studies on vulnerability
and risk under GACC scenarios along thecoast
Recurring/ Regular (RR)
• Sensi sa on and awarenesscrea on• Support na onal CCA eﬀorts
Medium Term (T2)
• Coordina on with central• Understanding adapta on needs
agencies• Study coping mechanisms• Sponsor and promote state• Develop GACC adapta on mechanisms
DMD$, SDMA, IRD,
speciﬁc eﬀorts and local eﬀorts
Long Term (T3)
WSD*, EFD, DRD,
for GACC mi ga on and• Implement GACC adapta on programs
DDMA, ULBs, PRIs
adapta on• Promote appropriate combina ons of(peri-urban)
Medium Term (T2)
Green and Blue infrastructure approach
Develop local adapta on strategies• Promote adap ve measures in socialand pilot projects
protec on programmes for theLong Term (T3)vulnerable groups• Sponsor and promote statespeciﬁc eﬀorts and local eﬀorts• Implementa on of GACC
adapta on programs

Climate Change Risk Management

NATIONAL DISASTER MANAGEMENT PLAN

139

140

Centre#Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Responsibility – State• Promote appropriate
combina ons of Green and Blueinfrastructure approach• Integrate adap ve measures insocial protec on programmes forthe vulnerable groups

Climate Change Risk Management

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal dep artment fordisaster management, which is not the same in every state/UT.

Urban Flooding
Sub-Thema c Area for
DRR

NATIONAL DISASTER MANAGEMENT AUTHORITY

Scien ﬁc Seismic
Zona onSeismic Microzona on

2

3• Earthquake
Monitoring Services• Na onal
Seismological
Network
1 • Real Time Seismic
Monitoring Network(RTSMN)• Earthquake Hazard
and Risk Assessment(EHRA)

Seismic
Sub-Thema c Area for
DRR

Understanding Disaster Risk
Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
Recurring/ Regular (RR)
• Es mate the earthquake parameters
quickly a er detec on• Disseminate informa on• Share informa on rela ng to undersea
earthquakes capable of genera ng
tsunamis in the Indian coastal regions with
MOES, MEITY,
DMD$,
Recurring/ Regular (RR)
INCOIS to issue of tsunami related
NLRTI
SDMA,
messages and warnings
DDMA, RD
Share informa on widely• Share seismic ac vity data with na onal
and interna onal scien ﬁc, academic andR&D ins tu ons
Medium Term (T2)
• Seismic hazard assessment• Seismic zoning• Seismic micro-zoning
DMD$,
Recurring/ Regular (RR)
MOES*, EREC,
Short Term (T1)
SDMA, RD,
Ensuring implementa on, enforcement,
BIS, GSI, NLRTI, Inter-Agency Coordina on and Collabora on
UDD, SPWD, compliance and monitoring; Awareness
MOST
for publishing the guidelines
ULB, DDMA
crea onDMD$,
Long Term (T3)
EREC, NLRTI
Medium Term (T2)
SDMA, RD,
Carry out need assessment from endDDMA, SLRTI users, conduct micro-zona on studies,
Centre#7.4.1 Understanding Disaster Risk

7.4 Seismic/ Earthquakes

NATIONAL DISASTER MANAGEMENT PLAN

141

142

MHA*, MOSPI,
all ministries/
depts.

Disaster Data
5 Collec on andManagement

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
Develop a status paper based on a consensus
priori ze important urban areas for microamong the professionals on thezona on, do professional review before
methodologies for micro-zona on studies
adop onRecurring/ Regular (RR)
• Promote studies, documenta on and
Recurring/ Regular (RR)
research
Undertake HRVCA as part of preparing and
DMD$,
periodic revision of DM plans• Studies on vulnerabili es and capaci es
SDMA, RD,
Short Term (T1)covering social, physical, economic,
DSJE, PRIs,
Cons tute/ strengthen the mechanisms
ecological, gender, social inclusion and
ULBs, DDMA
for consulta on with experts andequity aspects
stakeholders• Provide technical support and guidance forcomprehensive HRVCA
Recurring/ Regular (RR)
Recurring/ Regular (RR)
Systema c data management of data on
Systemac data management of data on
DMD$,
disaster damage and loss assessments
disaster damage and loss assessments
SDMA, all
Short Term (T1)
Short Term (T1)
depts.
Disaster Damage and Losses 2005-2015
Disaster Damage and Losses 2005-2015
baselinebaseline

Understanding Disaster Risk

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context . (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

NDMA, NIDM,
MOST, MSJE,
NLRTICentre#Hazard Risk
Vulnerability and4Capacity Assessment(HRVCA)

Seismic
Sub-Thema c Area for
DRR

NATIONAL DISASTER MANAGEMENT AUTHORITY

Non-structural
3
measures

DMD$, SDMA,
RD, DDMA,
PRIs, ULBs

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

Recurring/ Regular (RR)
MOES ,
Coordina on among central and state agencies for a)
MHA, BIS, revised/ updated rules, norms b) adop on of
NDMA
new/updated standards, c) enact/amend laws,
regula ons and d) adopt/ review policies*

MHA

DMD$, SDMA,
RD, DDMA,
PRIs, ULBs

Recurring/ Regular (RR)
Organising and coordina ng central assistance

2 Response

DMD$, SDMA,
RD, DDMA,
PRIs, ULBs

Recurring/ Regular (RR)
Providing coordina on, technical inputs, and support

Inter-Agency Coordina on
Responsibility – State
Recurring/ Regular (RR)
• Prepara on and implementa on of DM
plans and ensure the func oning ofagencies with DM tasks• All aspects of disaster risk management
and mainstreaming DRR• Ensuring coherence and mutual
reinforcement of DRR, CCA anddevelopment
Recurring/ Regular (RR)
• Organising and coordina ng theimmediate response• Coordinate with central agencies
Recurring/ Regular (RR)
Coordina on among state agencies for
ensuring updated norms/ codes and theirimplementa on, enforcement andmonitoring

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

MOES

Centre#Overall
1 disastergovernance

Seismic
Sub-Thema c
Area for DRR

7.4.2 Inter-Agency Coordina on

NATIONAL DISASTER MANAGEMENT PLAN

143

144

NDMA, NBCC,
BMTPC, CBRI, SERC,
IE(I), all relevant
Ministries/
Departments

Strengthening and seismic
retroﬁ ng of priori zed
2lifeline structures andbuildings

Hazard resistantconstruc on,strengthening, and3
retroﬁ ng of all lifeline
structures and cri cal
infrastructure
Recurring/ Regular (RR)
Guidance and implementa on

Medium Term (T2)
Implementa on strengthening andseismic retroﬁ ng as perrecommenda ons of safety audits

Recurring/ Regular (RR)
Ensure that mul -hazard resistantfeatures are incorporated inplanning and execu on of social
housing schemes (with special
focus on earthquake)

DMD$,
SDMA, RD,
DDMA, PRIs,
ULBs, SPWD

DMD$,
SDMA,
SPWD, RD,
DDMA, PRIs,
ULBs

DMD$,
SDMA, RD,
DDMA, PRIs,
ULBs, DRD,
UDD, PRD

Recurring/ Regular (RR)
Collabora on with technical agencies
and implementa on

Responsibility – State
Recurring/ Regular (RR)
• Ensure that earthquake resistantfeatures are incorporated in planningand execu on of social housing
schemes• Ensure compliance with relevantbuilding codes
Medium Term (T2)
Implementa on strengthening andseismic retroﬁ ng as perrecommenda ons of safety audits in all
govt. departments, agencies, public
u li es, schools, colleges, community
halls, etc.

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Structural Measures

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal dep artment fordisaster management, which is not the same in every state/UT.

Relevant Central
Government
Ministries

1 Social Housing Schemes

Centre#Relevant Central
Government
Ministries, MORD,
MHUA

Seismic
Sub-Thema c Area forDRR

7.4.3 Inves ng in DRR – Structural Measures
NATIONAL DISASTER MANAGEMENT AUTHORITY

Recurring/ Regular (RR)
Periodically provide clariﬁca ons inline with the relevant na onal
standards
Medium Term (T2)
Formulate standard procedures andguidelines

Medium Term (T2)
Establish a professional Civil Engineers
Council established by an Act forcer ﬁca on of engineers and evolve a

IRC, MRTH, RDSO, MOR,
AERB, DAE, BIS, MORD,MHUAMOES*, NDMA, IE(I),CIDC, CFI, NAC, relevant
Ministries/
Departments

MHRD, NDMA,
relevant Central
Ministries/Departments,• Structural safety audit
of lifeline structuresand buildings• Priori za on of lifeline2structures andbuildings forstrengthening andseismic retroﬁ ng

Licensing and3 cer ﬁca on of
professionals

Recurring/ Regular (RR)
• Periodic update of codes, rules,
regula ons• Work with all central ministries,
agencies, and state governments toimplement techno-legal regime bymodifying/ developing necessary
rules

Regula ons and model
codes for town planning,
1
civil works and public
infrastructure

Relevant
Departments

DMD$, SDMA,
RD, UDD, SPWD,
DDMA, PRIs,
ULBs

DMD$, SDMA,
RD, UDD, DRD,
SPWD, DDMA,
PRIs, ULBs

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Centre#Seismic
Sub-Thema c Area for
DRR

7.4.4 Inves ng in DRR – Non-Structural Measures

Medium Term (T2)
Implement licensing of engineers
through appropriate legal
framework and ins tu onal
mechanism

Responsibility – State
Medium Term (T2)
• Adopt suitable byelaws for ruraland urban areas, put model
codes (e.g., NBC 2016) into
prac ce and ensure propercompliance• Micro-zona on for seismic risk
reduc onLong Term (T3)
Ensure strict compliance withcode implementa on throughrelevant Departments andagencies
Recurring/ Regular (RR)
Carry out safety audit of lifelinebuildings and cri cal
infrastructure
Medium Term (T2)
Ensure implementa on,
monitoring, enforcement andproper compliance within state by
public, private and individuals

Non-Structural Measures

NATIONAL DISASTER MANAGEMENT PLAN

145

146

MFIN*, NDMA, MHA,
MAFW

Centre#professional bodies ofarchitects and engineers
NDMA, MOES, MCA*,
MCF, MOCI, MPFI,MHIPE, MFIN
DMD$, SDMA,
RD, DDMADFIN*, DMD$,
SDMA, DAG

Recurring/ Regular (RR)
Guidance
Recurring/ Regular (RR)
Implementa on of Risk Transfer
Arrangements including mul -hazard
insurance for life and property
Short Term (T1)
Policy Framework

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
procedure for cer ﬁca on ofengineers

Recurring/ Regular (RR)
Promote private par cipa on indisaster management facili es
Recurring/ Regular (RR)
Implementa on of Risk Transfer
Arrangements including mul hazard insurance for life andproperty
Short Term (T1)
Policy Framework

Responsibility – State

Non-Structural Measures

1 Training

Seismic
Sub-Thema c Area for
DRR
Centre#

MOES*, NIDM, MHRD,
NDMA, MYAS, NDRF,
others**7.4.5 Capacity Development
Capacity Development
Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
Recurring/ Regular (RR)
Recurring/ Regular (RR)
Carry out regular trainings of CDEF,• Support regular training
community and volunteers
programs
DMD$, SDMA,
Medium Term (T2)
• Training support for SDRF,
SDRF, RD, EDD,
•
Carry
out
the na onal eﬀort to build
CDEF, community, volunteers
ATI, SIRD, DDMA
the requisite number of trained
Medium Term (T2)
personnel to handle seismic safety in
Promote a na onal eﬀort to buildIndia
the requisite number of trained

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

5 Risk Transfer

Public Private
4
Partnerships

Seismic
Sub-Thema c Area for
DRR

NATIONAL DISASTER MANAGEMENT AUTHORITY

Recurring/ Regular (RR)
Monitoring Emergency
Preparedness of Ministries/
Departments

NDMA, All
Government
Ministries/ Agencies,
NDRF, Armed Forces,
CAPF

3 Awareness Genera on

4 Mock Drills/ Exercises

DMD$, SDMA,
IPRD, RD, SIDM,
ATIs, SDRF, F&ES,
CDEF, Police,
DDMA, PRIs, ULBs

Recurring/ Regular (RR)
Monitoring Emergency Preparedness of
Departments

Recurring/ Regular (RR)
• Carry out mass media campaigns• Promote culture of disaster risk
preven on, mi ga on, and be er risk
management• Promote a tude and behaviourchange in the awareness campaigns/
IEC
Medium Term (T2)
• Promote use of insurance/ risk
transfer• Promote Community Radio• Strengthening network of civil society
organiza ons for awarenessgenera on about DRR and DM• Informa on on care and protec on ofdisaster-aﬀected animals

NDMA, NDRF, CAPF,
NIDM

DMD$, SDMA, RD,
HD, EDD, DDMA

Recurring/ Regular (RR)
• Carry out mass media
campaigns• Promote culture of disaster risk
preven on, mi ga on, andbe er risk management• Promote a tude andbehaviour change in theawareness campaigns/ IEC
Medium Term (T2)
• Promote use of insurance/ risk
transfer• Promote Community Radio• Strengthen network of civilsociety organiza ons forawareness genera on about
DRR and DM

Curriculum
Development

Medium Term (T2)
DM related aspects to be included inundergraduate and professional courses

2

Medium Term (T2)
Facilitate the introduc on ofsubjects related to DM, in theundergraduate and professionalcourses

Responsibility – State

MOES, MOCI, MHRD,
UGC, AICTE, IITs,
NIDM and otherrelated agencies

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#• Trainings in search and rescue for
CDEF, community, and volunteers

Centre#Capacity Development

personnel to handle seismic
safety in India.

Seismic
Sub-Thema c Area for
DRR

NATIONAL DISASTER MANAGEMENT PLAN

147

148

MWCD, MSJE, NDMA,
NIDM

NDMA, NIDM, MORD,
MHUA

Empowering women,
marginalised, and6
persons withdisabili es

Community-Based
Disaster Management

Recurring/ Regular (RR)
Promo on, Guidance, andSupport

Short Term (T1)
Promo ng the planning andexecu on of emergency drills by
all ministries and in all States/UTs
Medium Term (T2)
Undertake documenta on ofmajor earthquakes and ensure
wider dissemina on
Medium Term (T2)
Incorpora ng gender sensi ve
and equitable approaches incapacity development covering
all aspects of disastermanagement

DMD$, SDMA, RD,
DDMA, PRIs, ULBs

DMD$, SDMA, RD,
SIDM, ATI, SLRTI,
DDMA, PRIs, ULBs

DMD$, SDMA, RD,
DDMA, PRIs, ULBs,
ATI

Medium Term (T2)
Incorpora ng gender sensi ve andequitable approaches in capacity
development covering all aspects ofdisaster management at the state,
district, and local levels
Recurring/ Regular (RR)
Training for PRI, SHG, NCC, NSS, Youth,
local community organiza ons
Short Term (T1)
Strengthen ability of communi es tomanage and cope with disasters basedon a mul -hazard approach

Recurring/ Regular (RR)
Populariza on and distribu on of
documenta on in local languages

Responsibility – State
Short Term (T1)
Joint planning and execu on of
emergency drills

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Capacity Development

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. (**) AICTE, CA, IE(I), NITTTR, NICMAR, CFI, BAI, and other professional ins tu ons. ($) DMD—Disaster Management
Department: The state government department ac ng as the nodal department for disaster management, which is not the same in every state/UT.

7

MOES, NIDM

Centre#Documenta on and
5
Dissemina on

Seismic
Sub-Thema c Area for
DRR

NATIONAL DISASTER MANAGEMENT AUTHORITY

Dissemina on of
4 warnings, data, andinforma on

Observa on Networks,
Informa on Systems,
Monitoring,3
Research,
Forecas ng & Early
Warning

2 Zoning/ Mapping

MOES*, MHA

DOS, IAF,
Indian Navy,ICG

MOES*, NLRTIMOES*, MOST,NLRTIMOES*, MOST,NLRTIResearch andDevelopment Eﬀorts

1

Centre#Tsunami
Sub-Thema c Area forDRR

7.5.1 Understanding Disaster Risk

7.5 Tsunami

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
Medium Term (T2)
• Encourage development of standardised
Medium Term (T2)methods for tsunami risk assessment andDevelopdetailed
computerized maps
scenario development, support studies to
DMD$, SDMA,
and databases of vulnerable areas
collect the data and compile knowledge
RD, DDMA
along the coast for planning and• Develop suitable large-scale digital maps
coordina on of DM ac vi es
indica ng the tsunami hazard basis on pasttsunami eventsLong Term (T3)
Recurring/ Regular (RR)
DMD$, SDMA,
Database of Tsunami Risk and Vulnerability in
Ensure support to the Central
RD, DDMA,
the coastal areas with informa on on trends ofGovernment agencies in zoning/
PRIs, ULBs
storm surge, high des, local bathymetry, etc.
mapping and carry out at their level
Medium Term (T2)
Assess the status of exis ng important
installa ons in coastal areas to withstand
DMD$, SDMA,
Recurring/ Regular (RR)
tsunamiRD, DDMA,
Support, coopera on for data
Medium Term (T2)
SLRTI
collec on and updates
Securing cri cal instrumenta on to ensure failsafe func oning of these cri cal instruments
and their protec on
Recurring/ Regular (RR)
Recurring/ Regular (RR)
DMD$, SDMA, Dissemina on of warnings to all, down
Monitoring seismic ac vity, provide warnings
RD, DDMA,
to the last mile – remote, rural orbased on seismic models and issue periodic
PRIs, ULBs
urban; Regular updates to people inbulle ns
areas at risk

Understanding Disaster Risk

NATIONAL DISASTER MANAGEMENT PLAN

149

150

MHA*, MOSPI,
all ministries/
depts.

MOES*, NDMA,NIDM, MOST,
MSJE

Centre#Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
Recurring/ Regular (RR)
• Promote studies, documenta on and
Recurring/ Regular (RR)
research
Undertake HRVCA as part of preparing
DMD$, SDMA,
and periodic revision of DM plans• Studies on vulnerabili es and capaci es
RD, DSJE,
Short Term (T1)covering social, physical, economic,
PRIs, ULBs,
Cons tute/ strengthen theecological, gender, social inclusion and equity
DDMA
mechanisms for consulta on withaspectsexperts and stakeholders• Provide technical support and guidance forcomprehensive HRVCA
Recurring/ Regular (RR)
Recurring/ Regular (RR)
Systemac data management of data
Systema c data management of data on
disaster damage and loss assessments
DMD$, SDMA, on disaster damage and loss
assessments
all depts.
Short Term (T1)
Short Term (T1)
Disaster Damage and Losses 2005-2015
Disaster Damage and Losses 2005baseline
2015 baseline

Understanding Disaster Risk

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

Disaster Data
6 Collec on andManagement

Hazard Risk
Vulnerability and5
Capacity Assessment(HRVCA)

Tsunami
Sub-Thema c Area for
DRR

NATIONAL DISASTER MANAGEMENT AUTHORITY

MOES ,
NDMA

Non-structural
measures

DMD$,
SDMA, RD,
DDMA, PRIs,
ULBs

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

4

MOES*,MHA, BIS,
NDMA

DMD$,
SDMA, RD,
DDMA, PRIs,
ULBs

Warnings,
3 Informa on,
Data*

Recurring/ Regular (RR)
Organising and coordina ng central assistance

MHA*

2 Response
Recurring/ Regular (RR)
Eﬀec ve coordina on and seamless communica on
among central and state agencies to ensure quick,clear, eﬀec ve dissemina on of warnings,
informa on and data
Recurring/ Regular (RR)
Coordina on among central and state agencies for a)revised/ updated rules, norms b) adop on of
new/updated standards, c) enact/amend laws,
regula ons and d) adopt/ review policies

DMD$,
SDMA,
DDMA, PRIs,
ULBs

Overall disastergovernance

Recurring/ Regular (RR)
Providing coordina on, technical inputs, and support

1

Inter-Agency Coordina on
Responsibility – State
Recurring/ Regular (RR)
• Prepara on and implementa on of DM
plans and ensure the func oning ofagencies with DM tasks• All aspects of disaster risk management
and mainstreaming DRR• Ensuring coherence and mutual
reinforcement of DRR, CCA anddevelopment in the coastal areas
Recurring/ Regular (RR)
• Organising and coordina ng theimmediate response• Coordinate with central agencies
Recurring/ Regular (RR)
Coordina ng the dissemina on of warnings
to all, down to the last mile – remote, ruralor urban; Regular updates to people in areas
at risk
Recurring/ Regular (RR)
Coordina on among state agencies for
ensuring updated norms/ codes and theirimplementa on, enforcement andmonitoring

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

MOES*

Centre#DMD$,
SDMA, RD,
DDMA, PRIs,
ULBs

Tsunami
Sub-Thema c
Area for DRR

7.5.2 Inter-Agency Coordina on

NATIONAL DISASTER MANAGEMENT PLAN

151

152

MOES*, NDMA,NLRTI**

BIS, NDMA,NLRTI**• Shelters from storm surges and tsunamis• Construc on of large-scale submerged sandbarriers• Periodical dredging of the inlets andassociated water bodies so as to absorb the
2 inﬂux during tsunami• Construc on of submerged dykes (one or two
rows along the stretch of the coast) so as todecrease the impact due to the incoming
tsunami and inland dykes to safeguard vital
installa ons

Hazard resistant construc on, strengthening,
3 and retroﬁ ng of all lifeline structures andcri cal infrastructure

Recurring/ Regular (RR)
Guidance andimplementa on

Recurring/ Regular (RR)
Guidance to implemen ng
agencies

Recurring/ Regular (RR)
Implementa on in compliancewith relevant building codes/
standards/ technical guidance

Recurring/ Regular (RR)
Collabora on with technicalagencies and implementa on

DMD$, SPWD,
DDMA, PRIs,
ULBs

DMD$, SDMA,
RD, SPWD,
DDMA, PRIs,
ULBs

Structural Measures
Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
Recurring/ Regular (RR)
DMD$, SDMA,
Recurring/ Regular (RR)
Implementa on as per
RD, SPWD,
Implementa on as perrecommenda ons of safety
DDMA, PRIs,
recommenda ons of safety
audit where applicable
ULBs
audit

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. (**) NBCC, BMTPC, CBRI, SERC, IE(I), IITs. ($) DMD —Disaster Management Department: The state government
department ac ng as the nodal department for disaster management, which is not the same in every state/UT.

1

Relevant Central
Government
Ministries

Centre#Strengthening of lifeline structures and highpriority buildings

Sub-Thema c Area for DRR

Tsunami7.5.3 Inves ng in DRR – Structural Measures

NATIONAL DISASTER MANAGEMENT AUTHORITYBIS

NDMA, MOEFCC,
MOES

3 Techno-Legal Regime

Non-structural shore
4 stabiliza on measuresand bio-shields

MFIN, NDMA, Ni
Ayog

MOES; DOS

Mainstreaming DM into
Development PlanningCentre#Regula on and
2 enforcement of relevantlaws

1

Tsunami
Sub-Thema c Area for
DRR

Non-Structural Measures
Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
Recurring/ Regular (RR)
Recurring/
Regular (RR)
DMD$, SDMA, RD,
Include DM concerns in plan
Include DM concerns all schemes andFinance Dept.,
schemes and non-plan proposals
proposals by various ministries as per
DDMA, PRIs, ULBs
by various ministries as per norms
norms
Short Term (T1)
• Ensure compliance with coastal
environment protec on laws andRecurring/ Regular (RR)
regula ons such as the CRZ
DMD$, SDMA, RD,• Guidance and Support• Regula ng aquaculture, andEFD, DDMA, PRIs,
groundwater extrac on• Oversight and monitoring of
ULBs
Medium Term (T2)compliance with CRZ laws
• Ecologically sound land-use zona on• Discourage inappropriate/ risky useof coastal areas
Recurring/ Regular (RR)
Recurring/ Regular (RR)
• Implementa on and
Ensure implementa on of standards
populariza on of relevant
through all departments/ ins tu ons$
Indian Standards
DMD , SDMA, RD,
Medium Term (T2)
DDMA, PRIs, ULBs
Develop suitable byelaws for rural• Support State Government inareas (for both engineers and nonpreparing byelaws for rural
engineered buildings) considering local
areas (for both engineered andcondi ons
non-engineered buildings)
Medium Term (T2)•
Developing
sand dunes along the
Recurring/ Regular (RR)
DMD$, SDMA, RD,
coast with sea weeds or shrubs or
Guidance and Support
EFD, DDMA
casuarinas trees for stabiliza on of
the sand dunes

7.5.4 Inves ng in DRR – Non-Structural Measures

NATIONAL DISASTER MANAGEMENT PLAN

153

Centre#NDMA, NBCC,
BMTPC, CBRI, SERC,
IE(I), all Ministries/
Departments

NDMA, MOES, MCA*,
MCF, MOCI, MPFI,MHIPE, MFIN

MFIN*, NDMA, MHA,
MAFW

Tsunami
Sub-Thema c Area for
DRR

Safety audits andevalua on of all lifeline
5
structures andimportant facili es

Public Private
6
Partnerships

7 Risk Transfer

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State• Raising the ground level (above thedesign water level) with natural
beach sandLong Term (T3)
• Development of coastal forest (greenbelt) by plan ng casuarinas orcoconut trees along the coastline tocover minimum of about 500m widthof the beach• Establishment of bio-shields (e.g.,mangrove planta ons, as a natural
defence) for communi es residing
along the estuaries
Long Term (T3)
• Detailed assessment of tsunami
hazard to the structure andRecurring/ Regular (RR)
DMD$, SDMA, RD,founda on and the beneﬁts of
Guidance and Support
DDMA, PRIs, ULBs
strengthening• Carry out structural safety audit of all
lifeline structures and importantfacili es
Recurring/ Regular (RR)
Recurring/ Regular (RR)
DMD$, SDMA, RD,
Promote private par cipa on in
Guidance
DDMA
disaster management facili es
Recurring/ Regular (RR)
Recurring/ Regular (RR)
Implementa on of Risk Transfer
Implementa on of Risk Transfer
Arrangements including mul DFIN*, DMD$,
Arrangements including mul -hazard
hazard insurance for life andSDMA, DAG
insurance for life and property
property
Short Term (T1)
Policy Framework

Non-Structural Measures
NATIONAL DISASTER MANAGEMENT AUTHORITY

154

Centre#Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Short Term (T1)
Policy Framework
Responsibility – State

Non-Structural Measures

2

Curriculum
Development

Training and Capacity
1 Development ofProfessionals

Tsunami
Sub-Thema c Area for
DRR

MHRD, UGC,AICTE, ICAR, etc.

MOES*, NIDM,
MYAS

MOES*, NIDM,
MYAS, NDRF

Centre#7.5.5 Capacity Development
Capacity Development
Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
Recurring/ Regular (RR)
• Technical capabili es in safety audit
Recurring/ Regular (RR)
• Conduct training programmes for
DMD$, SDMA,
Training and orienta on programs forState, SDRF, and Local Administra on
SDRF, RD, ATI,State Govt. staﬀ/ emergency response
personnel
SIRD, DDMA
oﬃcials, CDEF, Community, and otherincluding Fire and Rescue and Police
volunteer groups
personal in disaster management• Support training of SDRF, CDEF,
community, and volunteers
Medium Term (T2)
Evolve an ac on plan to oﬀer a
Recurring/ Regular (RR)
comprehensive curriculum related toTraining of the Trainers to impart
ATI, SLRTI
tsunami management in the form ofknowledge related to tsunami mi ga on
training modules for the various target
measures to various target groups
groupsShort Term (T1)$
Short Term (T1)
DMD , SDMA,
Include DM in the educa onal curricula
Include DM in the educa onal curricula
RD, EDD,and develop adequate technical exper se
including Tsunami hazard
DDMA
on various subjects related to DM including
TsunamiNotes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

Tsunami
Sub-Thema c Area for
DRR

NATIONAL DISASTER MANAGEMENT PLAN

155

156

Recurring/ Regular (RR)
Incorpora ng gender sensi ve andequitable approaches in capacity

NIDM, MOES,
through its nodal
ins tu ons

5 Documenta on

6

DMD$, SDMA,
RD, SIDM, ATI,

Short Term (T1)
• Prepare and distribute manuals andtsunami hazard zona on maps to the
public through SDMAs/ relevant
Ministries and Departments• Documenta on of lessons learnt, bestprac ces, success stories

4 Mock Drills/ Exercises

MSJE*, MWCD,
NDMA, NIDM

DMD$, SDMA,
RD, DDMA,
PRIs, ULBs

of

NDMA, All
Government
Ministries/
Agencies,
NDRF, Armed
Forces, CAPF

Empowering women,
marginalised, andpersons with disabili es

DMD$, SDMA,
RD, DDMA,
SDRF, F&ES,
CDEF, Police

Recurring/ Regular (RR)
Joint planning and execu on
emergency drills (Central and State)

NDMA, NDRF,
CAPF, NIDM

3 Awareness Genera on

Capacity Development

Recurring/ Regular (RR)
Incorpora ng gender sensi ve andequitable approaches in capacity

Recurring/ Regular (RR)
• Create awareness on tsunami risk andvulnerability among the coastal
communi es by distribu ng the hazard
zona on maps
• Documenta on of lessons learnt, bestprac ces, success stories

Recurring/ Regular (RR)
Joint planning and execu on of emergency
drills (Central, State, Local and Community)Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
Recurring/ Regular (RR)
Recurring/ Regular (RR)
• Carry out mass media campaigns• Carry out mass media campaigns• Promote culture of disaster risk
• Promote culture of disaster risk
preven on, mi ga on, and be er risk
preven on, mi ga on, and be er risk
management
management$• Promote a tude and behaviour change• Promote a tude and behaviour
DMD , SDMA,in the awareness campaigns/ IECchange in the awareness campaigns/
RD, DDMA,IEC
SDRF, F&ES,• Promote use of insurance/ risk transfer
CDEF, Police• Promote use of insurance/ risk
• Promote Community Radiotransfer• Strengthening network of civil society• Promote Community Radio
organiza ons for awareness genera on
about DRR and DM• Strengthening network of civil society
organiza ons for awareness• Inform people about care andgenera on about DRR and DM
protec on of disaster-aﬀected animals

Centre#Tsunami
Sub-Thema c Area for
DRR

NATIONAL DISASTER MANAGEMENT AUTHORITY

Community-Based
Disaster Management
NDMA, NIDM

Centre#Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
development covering all aspects of
SLRTI, DDMA,
development covering all aspects ofdisaster management
PRIs, ULBs
disaster management at the state, district,and local levels
Recurring/ Regular (RR)
• Strengthen ability of communi es to
Recurring/ Regular (RR)
DMD$, SDMA,
manage and cope with disasters based
Promo on, Guidance, and Support toRD, DDMA,
on a mul -hazard approach
CDEF and community, volunteers
PRIs, ULBs
• Training for PRI, SHG, NCC, NSS, Youth,
CDEF, local community organiza ons,
volunteers

Capacity Development

TsunamiSubThema c
Area for
DRR
Research,
Forecas ng,
Early1
Warning,
Informa on
Systems,

State#DMD$,
SDMA,
RD, AGD.,
AHD,
FIHD,
WRD,

Responsibility – Centre
Recurring/ Regular (RR)
Promote studies and research on climate changerelated risks and adapta on op ons
Medium Term (T2)
• Studies on GACC driven ecosystem andshoreline changes

Centre#

MOES*, DOS, MOST,
MOEFCC, MAFW,
NDMA, NLRTI

Responsibility – State

Recurring/ Regular (RR)
• Support na onal risk reduc on eﬀorts
related to GACC
• Coordina on with central agencies

Central/ State Agencies and their Responsibili es

Climate Change Risk Management

Earthquakes are not triggered by climate change. However, tsunami needs to be considered due to change in the storm surge pat tern due to sea level rise.

7.5.6 Climate Change Risk Management

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal dep artment fordisaster management, which is not the same in every state/UT.

7Tsunami
Sub-Thema c Area for
DRR

NATIONAL DISASTER MANAGEMENT PLAN

157

158

NIDM, MOEFCC,
MOES*, NLRTIMOES*, MOST, DOS,
MOJS, MAFW,
MOEFCCClimateChange3
Adapta on(CCA)

Centre#Hazard Risk
Vulnerability
and2
Capacity
Assessment(HRVCA)

TsunamiSubThema c
Area for
DRR
Zoning,
Mapping

DMD$,
SDMA,
EFD*,
FIHD, RD,
AGD,
WRD,
DDMA,

Medium & Long Term (T2, T3)• Assess the changes in risk, vulnerability andcapaci es under GACC impact scenarios• Assess GACC risks of vulnerable andmarginalised sec ons• Provide technical support and guidance forcomprehensive HRVCA considering GACC
impacts
Short Term (T1)
• Understanding CCA needs• Study GACC coping mechanisms• Develop CCA mechanisms
Medium & Long Term (T2, T3)• Support the implementa on GACC adapta on
programs

EFD,
SLRTI

State#DMD$,
SDMA,
RD, EFD,
Ag.D,
FIHD,
WRD
DDMA,
PRIs,
ULBs,
SLRTI

• Carry out risk zona on/mapping of climatechange impacts considering various sea-level
rise and shoreline change scenariosLong Term (T3)
• Develop database management system for
GACC impacts• Develop forecas ng model for risks from GACC
and its likely impacts

Responsibility – Centre

Responsibility – State

Recurring/ Regular (RR)
• Sensi sa on and awareness crea on• Support na onal CCA eﬀorts• Coordina on with central agencies• Sponsor and promote state-speciﬁc eﬀorts
and local eﬀorts for GACC mi ga on andadapta on

Medium & Long Term (T2, T3)• Promote state-speciﬁc studies onvulnerabili es, capaci es and risks under
GACC impact scenarios• Assess GACC risks of vulnerable andmarginalised sec ons• Sponsor and promote state-speciﬁc eﬀorts
and local eﬀorts for GACC mi ga on andadapta on
Medium (T2)
• Promote state-speciﬁc studies onenhanced risks (economic, social, etc.)
under diﬀerent GACC impact scenarios• Promote research studies with State
speciﬁc contexts on GACC and consequentchanges in hazards

Central/ State Agencies and their Responsibili es

Climate Change Risk Management
NATIONAL DISASTER MANAGEMENT AUTHORITY

Centre#• Promote adap ve measures in social protec on
programmes for the vulnerable groups

Responsibility – Centre

PRIs,
ULBs

State#

Responsibility – State
Short Term (T1)
Develop local adapta on strategies and pilot
projects
Medium & Long Term (T2, T3)• Sponsor and promote state-speciﬁc eﬀorts
and local eﬀorts• Promote appropriate combina ons ofGreen and Blue infrastructure approach• Implementa on of GACC adapta on
programs• Integrate adap ve measures in social
protec on programmes for the vulnerable
groupsCentral/ State Agencies and their Responsibili es

Climate Change Risk Management

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

TsunamiSubThema c
Area forDRR

NATIONAL DISASTER MANAGEMENT PLAN

159

160

Research andDevelopment

Hazard Risk
3 Vulnerability
and Capacity

2

MOM*, MOD*,
NDMA, NIDM,
MOST, MSJE

MOM, MOD, MOST,NLRTI**

Landslides and Snow Avalanches
Sub-Thema c
Area for DRR
Centre#HazardZoning,mapping,geological,
andMOM*, MOD*,
geotechnical1
WIHG, NIDM, DOS,
Inves ga ons
BRO, NLRTI **in regions
prone tolandslides
and snow
avalanches

7.6.1 Understanding Disaster Risk
Understanding Disaster Risk
Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
Recurring/ Regular (RR)
User-friendly inventory of landslides andavalanche prone areas and its upda on as per
widely accepted standards
DMD$,
Short Term (T1)
SDMA,
Recurring/ Regular (RR)
Prepara on of high resolu on / large scale landslide RD, State
Support to and coopera on with central
and snow avalanche maps
DGM,
agencies
Medium Term (T2)SRSAC,• Studies and monitoring of risk prone areas on DDMA
site and using satellites• Studies to classify vulnerable areas as per
likelihood of hazard
Medium Term (T2)
DMD$,
Scien ﬁc assessment for predic ng likelihood ofSDMA,
landslides, and be er understanding of driving
Recurring/ Regular (RR)
RD, DGM,
forcesSupport to and coopera on with central
SRSAC,Long Term (T3)
agencies
DDMA
R&D for methods to reduce risk and factors
driving landslide
Recurring/ Regular (RR)
DMD$,
Recurring/ Regular (RR)
Undertake HRVCA as part of preparing andSDMA,periodic revision of DM plans• Promote studies, documenta on and research
RD, DSJE,

7.6 Landslides and Snow Avalanches

NATIONAL DISASTER MANAGEMENT AUTHORITYMHA*, MOSPI, allministries/ depts.

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State• Studies on vulnerabili es and capaci es
Short Term (T1)
PRIs,
Cons tute/ strengthen the mechanisms forcovering social, physical, economic, ecological, ULBs
consulta on with experts and stakeholders
gender, social inclusion and equity aspects• Provide technical support and guidance forcomprehensive HRVCA
Recurring/ Regular (RR)
DMD$,
RD,
• Ensure facili es and infrastructure for the
Recurring/ Regular (RR)
SDMA,
implementa on of adequate access to
Quick, clear, eﬀec ve dissemina on among SPWD,
communi es at risk
central and state agencies
DDMA,• Dissemina on of warnings to all, down to
PRIs,
the last mile – remote, rural or urban;
ULBs
Regular updates to people in areas at risk
$
DMD ,
SDMA,
Medium Term (T2)RD,
Recurring/ Regular (RR)
Deploy reliable monitoring and warning systems DDMA,
Support and collabora on in implementa on
PRIs,
ULBs
Recurring/ Regular (RR)
Recurring/ Regular (RR)
Systema c data management of data on
Systema c data management of data on
DMD$,
disaster damage and loss assessments
disaster damage and loss assessments
SDMA, all
Short Term (T1)
Short Term (T1)
depts.
Disaster Damage and Losses 2005-2015
Disaster Damage and Losses 2005-2015 baseline
baseline

Understanding Disaster Risk

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or age ncy with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. Lead agencies: GSI under MOM for Landslides; SASE under MOD for Avalanche. (**) Academic/ Research ins tu ons,
especially CEDMM/IIT-Roorkee, DTRL. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department for disastermanagement, which is not the same in every state/UT.

Disaster Data
Collec on
6andManagement

Monitoring,
MOM*, MOD*,
Warning
5
MOJS, DOS, MOES,
Systems, and
BRO
Dissemina on

MOM*, MOD*,
Dissemina on
4
MOJS, DOS, MOES,
of warnings
BRO

Landslides and Snow Avalanches
Sub-Thema c
Area for DRR
Centre#Assessment(HRVCA)NATIONAL DISASTER MANAGEMENT PLAN

161

162

Non-structural
measures

DMD$,
SDMA, RD,
DDMA, ULBs,
PRIs

DMD$,
SDMA, RD,
DDMA, ULBs,
PRIs

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

4

GSI, MHA, BIS,
MOD, BRO,
NDMA

Recurring/ Regular (RR)
Eﬀec ve coordina on and seamless
communica on among central and state agencies
to ensure quick, clear, eﬀec ve dissemina on of
warnings, informa on and data
Recurring/ Regular (RR)
Coordina on among central and state agencies fora) revised/ updated rules, norms b) adop on of
new/updated standards, c) enact/amend laws,
regula ons and d) adopt/ review policies

GSI, SASE,
MOES (IMD),
MOM, BRO,
NDMA

Warnings,
3 Informa on,
Data

DMD$,
SDMA, RD,
DDMA, ULBs,
PRIs

Recurring/ Regular (RR)
Organising and coordina ng central assistance

MOM, MOD

MHA

Overall disastergovernance

DMD$,
SDMA, RD,
DDMA, ULBs,
PRIs

Recurring/ Regular (RR)
Providing coordina on, technical inputs, andsupportInter-Agency Coordina on
Responsibility – State
Recurring/ Regular (RR)
• Prepara on and implementa on of DM
plans and ensure the func oning ofagencies with DM tasks• All aspects of disaster risk management
and mainstreaming DRR• Ensuring coherence and mutual
reinforcement of DRR, CCA anddevelopment
Recurring/ Regular (RR)
• Organising and coordina ng theimmediate response• Coordinate with central agencies
Recurring/ Regular (RR)
Coordina ng the dissemina on of warnings
to all, down to the last mile – remote, ruralor urban; Regular updates to people inareas at risk
Recurring/ Regular (RR)
Coordina on among state agencies for
ensuring updated norms/ codes and theirimplementa on, enforcement andmonitoring

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

2 Response

1

Landslides and Snow Avalanches
Sub-Thema c
Area for DRR
Centre#7.6.2 Inter-Agency Coordina on
NATIONAL DISASTER MANAGEMENT AUTHORITY

Protec on of Heritage
Structures

Recurring/ Regular (RR)
Support and collabora on
Short Term (T1)
Iden ﬁca on safe buildings and sites to serve as temporary
shelters for people and livestock evacuated from locali es
at riskMedium Term (T2)
• Construc on of mul -purpose shelters in high risk areasat safe sites away from hazard-prone loca ons• Proper maintenance of roads in risk-prone areas

DMD$, SDMA,
State DGM,SRSAC, DDMA,
PRIs, ULBs

DMD$, SDMA,
DDMA, PRIs,
ULBs

Recurring/ Regular (RR)
Prepare lists of structures/sites
at risk due to landslides/slope
stability problems and priori sethem for hazard mi ga on

Recurring/ Regular (RR)
Technical support

ASI

NDMA,
NIDM

Landslides and Snow Avalanches
Sub-Thema c Area
for DRR
Centre#Site selec on for
Human Se lements
1 in Landslide and Snow MOM, MOD
Avalanche Prone
Areas

7.6.4 Inves ng in DRR – Non-Structural Measures

Short Term (T1)
Guidelines for proper site selec on forhuman se lements, ameni es, andother infrastructure

DMD$, SDMA,
State DGM,
DDMA, Local
Authori es

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Responsibility – State
Medium Term (T2)
• Detailed land-use zona on
incorpora ng landslide andsnow avalanche risks asapplicable

Non-Structural Measures

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

3 Mul -Hazard Shelters

2

Recurring/ Regular (RR)
Improving infrastructure, roads, and land stabiliza on work

DMD$, State
DGM, SPWD

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State

Structural Measures

Recurring/ Regular (RR)
Technical inputs and guidanceLandslides and Snow Avalanches
Sub-Thema c Area for
DRR
Centre#Protec on of Human
MOM,
1 Se lements and otherMOD,
infrastructures
BRO

7.6.3 Inves ng in DRR – Structural Measures

NATIONAL DISASTER MANAGEMENT PLAN

163

164

MOM*, NDMA, MHRD,
relevant Central Ministries/Departments, AICTE, IITs,
COA, IIA, Urban planners,
professional bodies ofarchitects and engineers

Licensing and3 cer ﬁca on of
professionals*

MOM , MOD , BIS, NIDM*

Centre#Regula ons and2
building codes

Landslides and Snow Avalanches
Sub-Thema c Area
for DRR• Establish a Professional Civil
Engineers Council established by an
Act for cer ﬁca on of engineers and• Evolve an appropriate techno-legal
framework for mandatory licensing ofprofessionals

Short Term (T1)

Medium Term (T2)
Codes and guidelines related tolandslides published by BIS to be
cri cally examined and reviewed bypeers. BIS will revise/revalidate every
ﬁve years or earlier, if necessary

DMD$ and all
relevant
Departments

DMD$, SDMA,
UDD, DDMA,
Local Authori es

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Recurring/ Regular (RR)
Implement licensing ofengineers throughappropriate legal frameworkand ins tu onal mechanism

Responsibility – State• Adopt suitable byelaws forrural and urban areas• Enforce/ promote model
codes (e.g., NBC 2016 andupdated standards) into
prac ce• Ensure proper compliance
Recurring/ Regular (RR)
Ensure implementa on andadherence to codes andguidelines
Medium Term (T2)
• Adopt the techno-legal
framework for ensuring
compliance with land use
zoning and landslide/avalanche safety issues• Adopt land use zoning,building byelaws and model
code (e.g., NBC 2016)
legisla on with suitable
modiﬁca on for reducing
risk

Non-Structural Measures
NATIONAL DISASTER MANAGEMENT AUTHORITYDFIN*, DMD$,
SDMA, DAG

Recurring/ Regular (RR)
Implementa on of Risk Transfer
Arrangements including mul -hazard
insurance for life and property
Short Term (T1)
Policy Framework

MFIN*, NDMA, MHA, MAFW

5 Risk Transfer

Recurring/ Regular (RR)
Promote private par cipa onin disaster management
facili es
Recurring/ Regular (RR)
Implementa on of Risk
Transfer Arrangements
including mul -hazard
insurance for life and property
Short Term (T1)
Policy Framework

Responsibility – State

Non-Structural Measures

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

DMD$, SDMA,
DDMA

Recurring/ Regular (RR)
Guidance

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
evolve a procedure for cer ﬁca on ofengineers• COA and IIA will be responsible forthe registra on, training andupgrada on of the skills of architects
and town planners in landslide safety
and construc on in case of architects
and town planners

MOM, MOD, NDMA, MCA*,
MCF, MOCI, MPFI, MHIPE,
MFIN

Centre#Public Private
4
Partnerships

Landslides and Snow Avalanches
Sub-Thema c Area
for DRR

NATIONAL DISASTER MANAGEMENT PLAN

165

166

Recurring/ Regular (RR)
Promo ng the planning and execu on of

NDMA, All theconcerned
Government

Mock Drills/
4
Exercises

GSI, NIDM, NDMA,NDRF, CAPF, MOIB

Awareness
Genera on

3

Recurring/ Regular (RR)
Joint planning and execu on of emergency
drills

DMD$, SDMA,
SDRF, F&ES,
CDEF, Police,

DMD$, SDMA,
SDRF, F&ES,
IPRD, DDMA,
PRIs, ULBs,
CDEF, Police

Recurring/ Regular (RR)
• Carry out mass media campaigns• Promote culture of disaster risk
preven on, mi ga on, and be er risk
management• Promote a tude and behaviour change
in the awareness campaigns/ IEC• Promote use of insurance/ risk transfer• Promote Community Radio

DMD$, SDMA,
EDD

MOM, GSI, MHRD,
UGC, AICTE, COA,
NIDM

Curriculum
Development

2

Medium Term (T2)
Review and revise curriculum

NIDM, MOM, MOD,
CDMM, COA, MYAS,
NDRF

DMD$, State
DGM, SRSAC,
SDRF, ATIs,
SIRD, SIDM,
SLRTI

Recurring/ Regular (RR)
• Train professionals on how to handle
slope failures and their remedia on andlandslide emergencies by promo ng
observa onal method of design andconstruc on with training on thedevelopment of con ngency plans• Support to SDRF, CDEF, community, andvolunteers

Training

Capacity Development
Responsibility – State
Recurring/ Regular (RR)
• Support and collabora on to na onal
agencies• Training and skill upgrades for search andrescue for CDEF, community, andvolunteers• Conduct regular training programmes for
professionals including those for careand protec on of disaster aﬀectedanimals
Medium Term (T2)
Include informa on on landslides andsnow avalanches in the curriculum
Recurring/ Regular (RR)
• Carry out mass media campaigns• Promote culture of disaster risk
preven on, mi ga on, and be er risk
management• Promote a tude and behaviour change
in the awareness campaigns/ IEC• Promote use of insurance/ risk transfer• Promote Community Radio• Inform people about care and protec onof disaster-aﬀected animals

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

1

Landslides and Snow Avalanches
Sub-Thema c
Area for DRR
Centre#7.6.5 Capacity Development
NATIONAL DISASTER MANAGEMENT AUTHORITY

Recurring/ Regular (RR)
Promo on, Guidance, and Support

Community7 Based Disaster
Management

DMD$, SDMA
DDMA, PRIs,
ULBs

DMD , SDMA
SIDM, ATI,SLRTI, DDMA,
PRIs, ULBs$

DMD$, SDMA,
SIDM, ATI,SLRTI, DDMA,
PRIs, ULBs

DDMA, PRIs,
ULBs

Recurring/ Regular (RR)
Incorpora ng gender sensi ve andequitable approaches in capacity
development covering all aspects ofdisaster management at the state, district,and local levels
Recurring/ Regular (RR)
• Strengthen ability of communi es tomanage and cope with disasters basedon a mul -hazard approach• Training for PRI, SHG, NCC, NSS, Youth,
local community organiza ons

Recurring/ Regular (RR)
Cons tute mul -ins tu onal and mul disciplinary teams for carrying out post
landslide ﬁeld inves ga ons, document
the lessons learnt and disseminate

Responsibility – State

Capacity Development

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context . (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

NDMA, NIDM, MORD,
MHUA

Recurring/ Regular (RR)
Incorpora ng gender sensi ve andequitable approaches in capacity
development covering all aspects ofdisaster management

Recurring/ Regular (RR)
Documen ng the history of landslidestudies and other related ac vi es in India

Nodal Agency: MOMGSI in collabora onwith the NIDM; CBRI;
CRRI; MOST; BRO; IITs,
universi es, and otheracademic ins tu ons

Empowering
women,MSJE*, MWCD, NDMA,
6 marginalised,
NIDM
and persons
with disabili es

5 Documenta on

emergency drills by all ministries and in all
States/UTs

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Ministries/ Agencies,
NDRF, Armed Forces,
CAPF

Landslides and Snow Avalanches
Sub-Thema c
Area for DRR
Centre#NATIONAL DISASTER MANAGEMENT PLAN

167

168

Climate Change Risk Management
Central/ State Agencies and their Responsibili es
Sub-Thema c Area for DRR
Centre#Responsibility – Centre
State#
Responsibility – State
Recurring/ Regular (RR)
Recurring/ Regular (RR)
Assessment, Monitoring, and• Support na onal risk reduc on
Scien ﬁc studies on GACC impacts
eﬀorts related to GACC
on LSA• Coordina on with central agencies
Short Term (T1)
Short Term (T1)
LSA vulnerability maps under GACC
• Sponsor and promote state-speciﬁc
scenarios
eﬀorts and local eﬀorts for GACC
Medium Term (T2)
mi ga on and adapta on• Study GACC-related changes on
Medium Term (T2)LSA$
DMD , IRD,
• Document state speciﬁc GACC
Research, Forecas ng/Early
MOM*,
MOD*, • Prepare detailed scenario maps of
WRD, SDMA,
impacts and coping mechanisms
1 Warning, Data Management, MOES*,MOJS,
LSA-prone areas likely to be
DDMA, PRIs,• Promote local weather-based
Zoning, Mapping
MAFW, DOS
impacted by GACC
ULBs
insurance mechanisms and• Assess enhanced LSA risks fromagricultural prac ces.
GACC
Long Term (T3)
• Develop database management• Promote state-speciﬁc studies on
system rela ng LSA, GACC andenhanced risks (economic, social,
triggering events.
etc.) under diﬀerent GACC impact
Long Term (T3)
scenarios
Improve the LSA forecas ng• Promote research studies with Statecapabili es consistent with thespeciﬁc contexts on GACC andan cipated GACC impacts on ﬂoodconsequent changes in hazards
prone areas
Recurring/ Regular (RR)
Medium Term (T2)
MOM*, MOD*,$
DMD , SDMA, Undertake HRVCA as part of preparing
Hazard Risk Vulnerability and NDMA, NIDM,• Improve the understanding of the2
RD, IRD, DSJE, and periodic revision of DM plans
Capacity Assessment (HRVCA) MOJS, MOST,
enhanced vulnerabili es of LSASLRTIShort Term (T1)
MSJE, NLRTI
prone communi es
Data collec on related to landslides

Landslide and Snow Avalanches

7.6.6 Climate Change Risk Management
NATIONAL DISASTER MANAGEMENT AUTHORITY

Climate Change Adapta on
3(CCA)

Sub-Thema c Area for DRR

Landslide and Snow Avalanches

MOM*, MOD*,
MOES*, MOST,
DOS, MOJS,
MOEFCC

Centre#Climate Change Risk Management
Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
Medium Term (T2)
• Assess GACC risks of vulnerable
and marginalised sec ons• Develop State speciﬁc strategies• Provide technical support and• Assess GACC risks of vulnerable andguidance for comprehensive
marginalised sec ons
HRVCA considering GACC impacts
Long Term (T3)
Undertake detailed studies onvulnerability and risk due under
GACC scenarios for LSA-prone
regions
Recurring/ Regular (RR)
• Sensi sa on and awarenesscrea on
Short Term (T1)
• Support na onal CCA eﬀorts
Understanding adapta on needs• Coordina on with central agencies
Medium Term (T2)
• Sponsor and promote state-speciﬁc• Study coping mechanisms
eﬀorts and local eﬀorts for GACC
• Develop adapta on mechanisms
mi ga on and adapta on
Long Term (T3)
Short Term (T1)
DMD$, EFD,
• Implement adapta on programs
Develop local adapta on strategies
SDMA, DDMA,
and projects
and pilot projects
PRIs, ULBs
Medium Term (T2)
• Promote appropriate
Sponsor and promote state-speciﬁc
combina ons of Green and Blueeﬀorts and local eﬀorts
infrastructure approachLong Term (T3)
• Promote adap ve measures in• Implementa on of GACC adapta onsocial protec on programmes for
programs
the vulnerable groups• Promote appropriate combina onsof Green and Blue infrastructure
approach

NATIONAL DISASTER MANAGEMENT PLAN

169

170

Centre#Climate Change Risk Management
Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State• Integrate adap ve measures insocial protec on programmes forthe vulnerable groups

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
mentioned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

Sub-Thema c Area for DRR

Landslide and Snow Avalanches

NATIONAL DISASTER MANAGEMENT AUTHORITYMNCFC, MAFW,
DOS, MOES, MOJS,
MOST

Vulnerability
Maps

55

54

Understanding Risk
Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
Recurring/ Regular (RR)
• Block-wise rainfall deﬁcit maps in therelevant regions – at crucial stages of
Recurring/ Regular (RR)
monsoon (e.g., early, middle, and• Annually, a er the end of the Southend), separately for SW and NE
West monsoon, carry out
monsoon55
comprehensive assessment of water• Comprehensive assessment of water
availability for drinking and irriga on
deﬁcit in dryland farming, rainfed,$
in all the dryland farming/droughtDMD , SDMA, RD,and drought-prone areas every year,
prone areas in the state to demarcate
SDMC, DDMA, SAUs
at the end of the SW and NE
blocks and preferably villages
in collabora on withmonsoons (stream ﬂow, surface andcentral agencies• Prepare maps of areas likely to facegroundwater)water deﬁcit before onset of next
• Agro-clima c region wise water
monsoon (demarcate blocks anddeﬁcit assessment reports forpreferably villages)
relevant regions separately at the• Undertake village-wise assessment of
end of SW and NE monsoon
water storage in the vulnerable blocks• Provide technical assistance to theState Govt./SDMC to prepare
vulnerability maps

Drought Management Manual—MAFW (2016)
Most of India receives rainfall from the South-West (SW) monsoon, while Tamil Nadu, Pondicherry, and coastal Andhra Pradesh get bulk of their rainfall from the PostMonsoon (or the North East – NE – monsoon). For Tamil Nadu, NE monsoon is the main rainy season.

1

Centre#Drought
Sub-Thema c
Area for DRR

7.7.1 Understanding Risk

This sec on relies on the guidelines published by NDMA on drought management listed in Annexure-I and the manual54 prepared by the MAFW (2016).

7.7 Drought

NATIONAL DISASTER MANAGEMENT PLAN

171

172

Assessment,
Monitoring,
Forecas ng, Early
2
Warning

Drought
Sub-Thema c
Area for DRR

MAFW, MOES,
DOS, MOJS, MOST

Centre#Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State• Analysis of satellite imageries, use of
appropriate indicators (vegeta on,
NDVI, SAVI, soil moisture, MAI, etc.)
Short Term (T1)
Recurring/ Regular (RR)
• Improve the drought forecast, and• Coordinate with central agencies in theassessment of water deﬁcit (likely
compila on, for reﬁning forecast
mismatch between es mates ofaccuracy for the region, and analysis ofrequirements and availability) in the
all the drought, water deﬁcit, and crop
arid/semi-arid, drought-prone, andrelated data
dryland farming areas• Ensure func oning of DMC with• Prepare detailed advisories on waterrequisite facili es and staﬀ toconserva on and crop management
con nuously monitor water availability
measures based on drought andin the drought-prone blocks a er$
water deﬁcit in consulta on withlikelihood of drought. Is high.
SDMC, DMD , SDMA,
experts for each State/UT which is
RD, AGD, IRD, Water• Separately, at the end of SW and NE
likely to face acute water deﬁcit
Supply Dept., SAUs inmonsoon, as applicable, prepare andcollabora on with• Monitoring key drought indices at
update a robust database of microNa onal and State levels as per latest central agencies,
level details on rainfall, reservoir/ lake
DDMA
na onal manual for drought
water levels, surface water/ groundmanagement
water, soil moisture, sowing/ cropcondi ons and socio-economic factors• Developing composite index ofvarious drought indicators relevant• Separately, at the end of SW and NE
to each agro-clima c zone
monsoon, prepare crop advisory forblocks that are likely to face water• Develop a mul -criteria methoddeﬁcitbased on various indices (vegeta on,
soil, water availability, etc.) as• Separately, at the end of SW and NE
standardized framework for droughtmonsoons, prepare comprehensive
forecas ng considering agro-clima cwater conserva on, re-distribu on,zones
and management plan for the areas inUnderstanding Risk
NATIONAL DISASTER MANAGEMENT AUTHORITY

MAFW, MOES,
DOS, NITI Aayog

MAFW, MOJS,
MOES, MOST,
MSJE, DOS

Hazard Risk
Vulnerability and
4 Capacity
Assessment(HRVCA)

Centre#Drought3
Declara on

Drought
Sub-Thema c
Area for DRR

Short Term (T1)
• Apply the latest (most updated)criteria and methods for assessmentof drought condi ons and key
indicators for declaring drought, as
per latest recommenda ons of theappropriate agency• Collaborate with State Government
and its agencies for monitoring/declara on of drought• Separately, a er end of SW and NE
monsoon, if applicable, ini ate
consulta ons to provide drought
advisory to states by end of Octoberfor regions covered by SW monsoon
and by end of March for regions
relevant to NE monsoon
Recurring/ Regular (RR)
• Promote studies, documenta on andresearch• Studies on vulnerabili es andcapaci es covering social, physical,
economic, ecological, gender, social
inclusion and equity aspects• Provide technical support andguidance for comprehensive HRVCA
DMD$, SDMA, DSJE,
SAU, AGD, PRIs,
ULBs, DDMA

DMD$, SDMA, RD,
SDMC, SAU, AGD,
IRD, WRD, DDMA

Responsibility – Statethe state that are likely to experiencewater deﬁcit

Recurring/ Regular (RR)
• Undertake HRVCA as part ofprepara on/ revision of DMP• Es mate vulnerability of crops torainfall uncertain es
Short Term (T1)Cons tute/ strengthen the mechanisms
for consulta on with experts andstakeholders

Short Term (T1)
• Monitor key indicators for drought
declara on with the support of
relevant Central/ State agencies/ Dept.
• State Govt. to issue a formal
declara on of drought aﬀected areasa er which Collector will no fy the
district and talukas aﬀected andini ate drought response measures• No fy drought - Kharif by 30 October;
Rabi by 31 March• Early season drought: In August as perrecommended criteria

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Understanding Risk

NATIONAL DISASTER MANAGEMENT PLAN

173

174

MHA*, MOSPI, allministries/ depts.

Centre#
MAFW, MOES
(IMD), DOS, MOJS,NRAA, CRIDA,
NIDM, MOST,
MOST, CSIR, andother agencies
related to research
DMD$, SDMA, SAUs
in collabora on withCRIDA, NRAA

Recurring/ Regular (RR)
Systema c data management of dataon disaster damage and loss
DMD$, SDMA, allassessments
depts.
Short Term (T1)
Disaster Damage and Losses 2005-2015
baseline

Medium Term (T2)
• Agricultural research focussed on
drought-prone areas, arid/semi-arid
tracts, and dryland farming areas• Research related to water
conserva on and management

Short Term (T1)
Disaster Damage and Losses 2005-2015
baseline

Recurring/ Regular (RR)
Systema c data management of data on
disaster damage and loss assessments

Responsibility – State
Recurring/ Regular (RR)
Conduct research through the university
system to cope with water deﬁcit, tomanage crops with less water, improvewater conserva on programs, enhance
the produc vity of dryland/ rainfed
farming

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Understanding Risk

1

Overall disastergovernanceDrought
Sub-Thema c
Area for DRR

MAFW

Centre#7.7.2 Inter-Agency Coordina on

Recurring/ Regular (RR)
Providing coordina on, technical inputs, andsupport

DMD$, SDMA,
RD, AGD, DRD,
PRD, DDMA,
PRIs, ULBs

Inter-Agency Coordina on
Responsibility – State
Recurring/ Regular (RR)
• Prepara on and implementa on of DM
plans and ensure the func oning ofagencies with DM tasks• All aspects of disaster risk management
and mainstreaming DRR

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead rol e, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

Disaster Data
6 Collec on andManagement

5 ResearchDrought
Sub-Thema c
Area for DRR

NATIONAL DISASTER MANAGEMENT AUTHORITY

MAFW, MOES,
MOJS, DOS,
MOST, MEITY,
NDMA

MAFW, MOJS,
MOES, MHA,
BIS, NDMA

Warnings,
3 Informa on,
Data

Non-structural
4
measures

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State• Ensuring coherence and mutual
reinforcement of DRR, CCA anddevelopment
Recurring/ Regular (RR)
DMD$, SDMA,
Recurring/ Regular (RR)
• Organising and coordina ng theRD, DDMA, PRIs,
Organising and coordina ng central assistance
immediate response
ULBs• Coordinate with central agencies
Recurring/ Regular (RR)
SDMC, DMD$,
Recurring/ Regular (RR)
Eﬀec ve coordina on and seamless
SDMA, RD, AGD, Coordina ng the dissemina on ofcommunica on among central and state
IRD, WRD,
warnings to all, down to the last mile –agencies to ensure quick, clear, eﬀec ve
DDMA, PRIs,
remote, rural or urban; Regular updates
dissemina on of warnings, informa on and data ULBs
to people in areas at risk
Recurring/ Regular (RR)
Recurring/ Regular (RR)
Coordina on among central and state agencies
DMD$, SDMA,
Coordina on among state agencies forfor a) revised/ updated rules, norms b) adop on RD, DDMA, PRIs, ensuring updated norms/ codes and theirof new/updated standards, c) enact/amend laws, ULBs
implementa on, enforcement andregula ons and d) adopt/ review policies
monitoring

Inter-Agency Coordina on

1

Storage
Facili es

Drought
SubThema c
Area for DRR

MAFW, MOJS,
MORDCentre#Responsibility – Centre

DMD$, SDMA, RD, DDMA,
Forest Dept., Water Supply

State#

Central/ State Agencies and their Responsibili es

Recurring/ Regular (RR)
• Technical support for water conserva on
structures, integrated water resources

7.7.3 Inves ng in DRR - Structural Measures

Recurring/ Regular (RR)
• Drinking water storage anddistribu on facili es

Responsibility – State

Structural Measures

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

MAFW

Centre#2 Response

Drought
Sub-Thema c
Area for DRR

NATIONAL DISASTER MANAGEMENT PLAN

175

176

Recurring/ Regular (RR)
Ensure rainwater harves ng and storage inthe social housing schemes in droughtprone areas

MAFW, MOJS,
MORD

MORD, MHUA,
relevant Central
Government
Ministries

Social3 Housing
Schemes

Recurring/ Regular (RR)
• Water harves ng and storage
structures• Check dams, reservoirs withexcess capacity• Groundwater recharge
augmenta on systems
Recurring/ Regular (RR)
Ensure rainwater harves ng andstorage in the social housing
schemes especially in droughtprone areas• Fodder storage facili es tomaintain fodder banks• Rainwater harves ng systems –individual and community

Responsibility – State

Structural Measures

1 Mi ga on Measures

Drought
Sub-Thema c Area for
DRR

Central/ State Agencies and their Responsibili es
Centre#Responsibility – Centre
Short Term (T1)
MOES, MAFW,•
Conduct
pilot studies in drought
MOJS

7.7.4 Inves ng in DRR – Non-Structural Measures

State#DMD , SDMA, RD,
DDMA, PRIs, ULBs,$

Responsibility – State
Recurring/ Regular (RR)
Coordinate the eﬀorts of the central

Non-Structural Measures

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal dep artment fordisaster management, which is not the same in every state/UT.

DMD$, SDMA, RD, DDMA,
PRIs, ULBs, WRD, DRD, PRD,
AHD, RD, IRD

DMD$, SDMA, RD, DDMA,
PRIs, ULBs, WRD, DRD, PRD,
AHD, RD, IRD

Recurring/ Regular (RR)
• Technical support• Guidelines• Projects/ Grants

Water
2 Conserva on
Structures

State#
Dept., PRIs, ULBs, WRD, DRD,
PRD, RDResponsibility – Centre

Central/ State Agencies and their Responsibili esmanagement infrastructure needs(surface and ground water)
Short Term (T1)
• Projects/ Grants• Guidelines on various forms of coping
arrangements

Centre#Drought
SubThema c
Area for DRR

NATIONAL DISASTER MANAGEMENT AUTHORITY

Promote water
conserva on,2
harves ng, eﬃcientirriga on, aﬀoresta on

Drought
Sub-Thema c Area for
DRR

MAFW, ICAR,
Agricultural
Research
Ins tu ons, DOS,
NIDM

Recurring/ Regular (RR)
• Support training programmes• IEC eﬀorts• Judicious use of surface andgroundwater• Technical and training inputs• Research, guidance, anddocumenta on support

prone areas for sugges ng longterm mi ga on measures• Promote watersheddevelopment projects
Medium Term (T2)
• Convergence of lessons learnt
from studies carried out by
various research ins tu ons.
• Technical inputs on be er crop
management (especially fordryland/ rainfed farming)• Public Private Partnerships

Central/ State Agencies and their Responsibili es
Centre#Responsibility – Centre

DMD$, SDMA, RD,
DDMA, PRIs, ULBs,
WRD, DRD, PRD,
AHD, RD, IRD, SAU,
EFD

agencies in implemen ng mi ga on
measures
Short Term (T1)
• Promote private par cipa on in disastermanagement facili es• Improve the implementa on ofwatershed development programmes
Medium Term (T2)
• Risk management for dryland/ rainfed
farmers through agricultural extension,and ﬁnancial ins tu ons based on
assessments at the end of monsoon (SWor NE as applicable)• Drought-Prooﬁng

WRD, DRD, PRD,
AHD, RD, IRD, SAU,
EFD

Recurring/ Regular (RR)
• Promote water eﬃcient irriga on
systems (sprinklers, drip, etc.)• Promote protec ve irriga on throughmicro irriga on systems• Provide advice to farmers to cope withdrought, crop management underdrought condi ons, and eﬃcient water
management• Training in water and soil moisture
conserva on• Promote village-level informa on
systems for natural resour cemanagement

Responsibility – State

State#

Non-Structural Measures

NATIONAL DISASTER MANAGEMENT PLAN

177

178

DFIN*, DMD$,
SDMA, DAG

Recurring/ Regular (RR)
Implementa on of Risk Transfer
Arrangements including mul hazard insurance for life andproperty
Short Term (T1)
Policy Framework

MAFW, IRDA,
NABARD, Banks,
ICAR

MFIN*, NDMA,MHA, MAFW

4 Risk Transfer

Recurring/ Regular (RR)
Implementa on of Risk Transfer
Arrangements including mul -hazard
insurance for life and property
Short Term (T1)
Policy Framework

Responsibility – State• Aﬀoresta on and other op ons using
economically useful vegeta on
Recurring/ Regular (RR)
• Need-based credit• Promote ﬁnancial inclusion• Monitor the availability of credit andother ﬁnancial support from banks andother ﬁnancial ins tu ons to farmers indrought-prone areas• Ensure the insurance programmes reachthe target audiences (especially dryland/
rainfed farmers) and dependent
agricultural labor• Marke ng support• Ensuring availability of quality
agricultural inputs

Non-Structural Measures

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

DMC, AGD, State
Rural Coop. Banks,
Rural Banks,
NABARD, SLBC,DDMAState#

Agricultural credit,
agricultural inputs,
3
ﬁnance, marke ng,
and crop insuranceCentral/ State Agencies and their Responsibili es
Centre#Responsibility – Centre

Recurring/ Regular (RR)
• Provide credit and ﬁnancing
products relevant to thedrought-prone areas• Promote agricultural insurance
programmes and ensure that
farmers are informed about theavailability of insurance
products• Ensure risk cover for dryland /rainfed farmers who face very
high rainfall uncertainty anddependent agricultural workers

Drought
Sub-Thema c Area for
DRR

NATIONAL DISASTER MANAGEMENT AUTHORITY

1

Training and Capacity
Building

Drought
Sub-Thema c Area
for DRR
Centre#

MAFW, NIDM,
NDRF, MANAGE,
NIRD, DMC, MYAS,
NDRF

7.7.5 Capacity Development

Short Term (T1)
• Formulate and implement na onal
training and capacity building
programme for droughtmanagement through be er water
conserva on, integrated water
management (surface and groundwater), and cropping systems• Ensure availability of qualiﬁed andexperienced trainers conversant withdrought mi ga on and management
techniques• Support training of SDRF, CDEF,
community, and volunteers
SDMA, ATI,
SIDM, SIRD,SLRTI, SDMC,
SDRF, DDMA,
PRIs, ULBs

Responsibility – State
Short Term (T1)
• Formulate and implement na onal
training and capacity building
programme for drought management,
especially, be er water conserva on,
integrated water management (surface
and ground water), and cropping
systems• Implement diﬀerent training
programmes for oﬃcials at various
levels, elected representa ves,
community leaders, CDEF, civil society
organiza ons, animal welfareorganiza ons
Medium Term (T2)
• Ensure availability of qualiﬁed andexperienced trainers conversant withdrought mi ga on and management
techniques (crop, animal care,
integrated water resources – surface
and ground water)• Professionals for veterinary care andsupport to drought-aﬀected animals

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Capacity Development

NATIONAL DISASTER MANAGEMENT PLAN

179

180

NDMA, NDRF,
NIDM

Awareness
Genera on

3

MWCD, MSJE,
NDMA, NIDM

MAFW, Agri. Univ.,
MHRD, MHRD,
NCERT, CBSE

Curriculum
Development

2

Empowering women,
marginalised
4 communi es, anddiﬀerently abled
persons

Centre#Drought
Sub-Thema c Area
for DRR

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
Recurring/ Regular (RR)
Recurring/ Regular (RR)
• Include basic aspects of disaster• Include basic aspects of disastermanagement including drought inmanagement including drought ingraduate and post-graduate courses$
DMD , SAU,
graduate and post-graduate courses inin agriculture oﬀered by central
EDD, SBSE
agriculture and veterinary courses
ins tu ons
oﬀered by state ins tu ons• Include drought mi ga on in• Include drought mi ga on in secondary
secondary and higher secondaryand higher secondary school curriculum
school curriculum
Recurring/ Regular (RR)
Recurring/ Regular (RR)
• Carry out mass media campaigns• Carry out mass media campaigns• Promote culture of disaster risk
preven on, mi ga on, and be er risk
• Promote culture of disaster risk
management covering crop and water
preven on, mi ga on, and be er
DMD$, SDMA,
management (including conserva on ofrisk management
IPRD, RD,surface and ground water)• Promote a tude and behaviour
DDMA, PRIs,• Promote a tude and behaviour changechange in the awareness campaigns/
ULBs, SAU
in the awareness campaigns/ IEC
IEC• Promote use of insurance/ risk transfer• Promote use of insurance/ risk
transfer• Promote Community Radio• Promote Community Radio• Inform people about care andprotec on of disaster-aﬀected animals$
DMD , SDMA,
Recurring/ Regular (RR)
Recurring/ Regular (RR)
RD, DDMA,
Incorpora ng gender sensi ve andIncorpora ng gender sensi ve and
PRIs, ULBs,
equitable approaches in capacity
equitable approaches in capacity
AGD, AHD,
development covering all aspects ofdevelopment covering all aspects of
WRD, DRD,
disaster management at the state,disaster management
PRD, IRD, SAU,
district, and local levels
EFD, DSJE

Capacity Development
NATIONAL DISASTER MANAGEMENT AUTHORITY

Drought Management
Plans

Relevant Central
Ministries incollabora on with
State Governments

MAFW

Centre#Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
Short Term (T1)
• Support the prepara on of drought
DMD$, SDMA,
management plans based on detailed RD, DDMA,
Short Term (T1)
projec ons of water deﬁcit in the
PRIs, ULBs,
Ensure development of state, district,drought-prone areas taking into
AGD, AHD,
block, taluka and village drought
account agro-clima c zones
WRD, DRD,
management plans• Provide advisory to the states having PRD, IRD, SAU,
EFD
large areas that may face drought/
acute water deﬁcit
DMD$, SDMA,
Recurring/ Regular (RR)
RD, DDMA,
Recurring/ Regular (RR)
All ministries/ departments will
PRIs, ULBs,
All state govt. departments/ agencies will
mainstream disaster management
AGD, AHD,
mainstream disaster management eﬀorts
eﬀorts in their developmental plans
WRD, DRD,
in their developmental plans
PRD, IRD

Capacity Development

1

Research,
Forecas ng, DataManagement,
Zoning, Mapping

Drought
Sub-Thema c Area
for DRR

MAFW*,
MOEFCC,
MOES, DOS,
MOJS, NLRTICentre#7.7.6 Climate Change Risk Management

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Recurring/ Regular (RR)
DMD$, IRD, AGD,
Improving the assessment and monitoring of
WRD, SDMA,
intensity, frequency of weather events and
DDMA, PRIs, ULBs,
rainfall/water deﬁcit in rainfed, arid/semiarid
SLRTI, EFD
areas factoring-in GACC impacts

Responsibility – State
Recurring/ Regular (RR)
• Support na onal risk reduc on
eﬀorts related to GACC
• Coordina on with central
agencies

Climate Change Risk Management

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

Mainstreaming
drought management
6
in developmental
plans

5

Drought
Sub-Thema c Area
for DRR

NATIONAL DISASTER MANAGEMENT PLAN

181

182

2

Hazard Risk
Vulnerability andCapacity
Assessment(HRVCA)

Drought
Sub-Thema c Area
for DRR

MAFW*,
NDMA, NIDM,
MOJS, MOST,
MSJE, NLRTICentre#Short-Term (T1)
Water deﬁcit and crop vulnerability maps under
GACC scenarios
Medium Term (T2)
• Improve the understanding of the enhanced
vulnerabili es of communi es to extremehydro-clima c events.

DMD$, SDMA, RD,
IRD, AGD, DSJE,
SLRTICentral/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Short Term (T1)
• Assessing GACC eﬀects on drought-prone
areas• Assess enhanced economic and social risks
under GACC scenarios
Medium Term (T2)
• Prepare GACC scenario maps for all droughtprone areas• Assess enhanced drought risks from GACC andon adapta ons to change• Develop Database management systemrela ng to climate change & Drought Risk
Long Term (T3)
• Improve GACC impact-based projec on andassessment capabili es consistent with thean cipated changes in the occurrence ofdrought condi ons• Expansion of weather insurance mechanisms
and agricultural prac ces.
• Research on climate resilient crops for drought
prooﬁng.

Responsibility – State• Sponsor and promote statespeciﬁc eﬀorts and local eﬀorts
for GACC mi ga on andadapta on
Short Term (T1)
• Document state-speciﬁc GACC
impacts and coping mechanisms• Take ini a ves to promote
drought resistant crops• Promote local weather-based
insurance mechanisms andagricultural prac ces
Medium & Long Term (T2, T3)• Promote state-speciﬁc studies
on enhanced risks (economic,
social, etc.) under diﬀerent
GACC impact scenarios• Promote research studies with
State speciﬁc contexts on GACC
and consequent changes inhazards.
Recurring/ Regular (RR)
Undertake HRVCA as part ofpreparing and periodic revision of
DM plans
Short Term (T1)
• Impact assessment, economic
and social risks under GACC andrepor ng

Climate Change Risk Management
NATIONAL DISASTER MANAGEMENT AUTHORITY

MAFW*,
MOES*, MOST,
DOS, MOJS,
MOEFCCClimate Change
Adapta on(CCA)

3

Centre#Drought
Sub-Thema c Area
for DRR

Recurring/ Regular (RR)
• Promote climate resilient crops• Capacity Building and Regular Monitoring &Evalua on
Short Term (T1)
• Understanding adapta on needs• Study coping mechanisms• Develop adapta on mechanisms
Medium & Long Term (T2, T3)• Implement CCA programs• Implement eﬃcient water management andmonitoring systems as part of CCA in the
drought-prone areas• Formulate legal and regulatory frameworks indrought-prone areas considering GACC
• Promote appropriate combina ons of Greenand Blue infrastructure approach

DMD$, SDMA,
DDMA, PRIs, ULBs,
AGDCentral/ State Agencies and their Responsibili es
Responsibility – Centre
State#• Crea on of data bank and hazard risk &vulnerability mapping.
• Impact assessment, periodic review andevalua on• Assess GACC risks of vulnerable andmarginalised sec ons• Provide technical support and guidance forcomprehensive HRVCA considering GACC
impacts
Long Term (T3)
Undertake detailed studies on vulnerability andrisk due to land degrada on / deser ﬁca on.

Recurring/ Regular (RR)
• Sensi sa on and Public
Awareness• Capacity building and u lising
tradi onal knowledge to build
eco-system.
Short Term (T1)
Develop
Local
Adapta on
Strategies
Medium Term (T2)
• Implement various water andsoil conserva on programmesconsistent with an cipated
GACC impacts• Adapta on and mi ga on
strategies under DM plan for
ensuring food security.

Responsibility – State• Assess GACC risks of vulnerable
and marginalised sec ons
Medium Term (T2)
Crea on of databank and hazard,
risk & vulnerability mapping at
local level.

Climate Change Risk Management

NATIONAL DISASTER MANAGEMENT PLAN

183

184

Centre#• Promote adap ve measures in social
protec on programmes for the vulnerable
groupsCentral/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Responsibility – StateLong Term (T3)
• Sponsor state-speciﬁc eﬀorts;
support local eﬀorts• Develop climate resilient
infrastructure.
• Implement eﬃcient water
management and monitoring
systems as part of CCA in the
drought prone areas.
• Promote appropriate
combina ons of Green and Blueinfrastructure approach• Integrate adap ve measures insocial protec on programmes
for the vulnerable groups

Climate Change Risk Management

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

Drought
Sub-Thema c Area
for DRR

NATIONAL DISASTER MANAGEMENT AUTHORITYNATIONAL DISASTER MANAGEMENT PLAN

7.8 Cold Wave and FrostAs Cold Wave/Frost is a localized phenomenon, the relevant State Governments must draw up loca on
speciﬁc mi ga on plans involving respec ve DDMAs and local authori es (PRIs and ULBs). Risk transfer
arrangements including mul -hazard insurance for life and property should be implemented. The
central and state governments should develop relevant policy frameworks.

7.8.1 Mi ga on Measures for People
The State Governments must maintain close coordina on with India Meteorological Department(MOES (IMD)) and closely monitor cold wave situa on. Warnings should be disseminated to the publicthrough appropriate forums (including local newspapers and radio sta ons) on a regular basis. Someof the mi ga on measures to be followed are shown below:
•
•
•
•
•
•
•
•
•
•
•

•
•
•

Stay indoors as much as possible
Listen to local radio sta ons for weather updates
Eat healthy food to supply heat to the body and drink non-alcoholic beverages to avoid
dehydra on
Wear several layers of lightweight and warm clothes; rather than one layer of heavy clothing.
The outer garments should be ghtly woven and water-repellent.
Keep dry. Change wet clothing frequently to prevent loss of body heat.
Maintain proper ven la on when using kerosene, heater or coal oven to avoid toxic fumes.
In case of non-availability of hea ng arrangement, go to public places where hea ng
arrangements are made by administra on.
Cover your head, as most body heat is lost through the top of the head and cover your mouth
to protect your lungs.
Avoid over work. Over exer on can cause heart a ack.
Watch for signs of frostbite: loss of feeling and white or pale appearance on ﬁngers, toes, ear
lobes and the p of the nose.
Watch for signs of hypothermia (subnormal body temperature): uncontrolled shivering,
memory loss, disorienta on, incoherence, slurred speech, drowsiness and apparent
exhaus on. Immediately rush to the nearest hospital for medical treatment.
Stock up on food, water, and other necessi es before a cold wave.
Stock suitable forage before cold waves for livestock
Keep hospitals in a state of readiness for the admission of vic ms of frostbite a nd hypothermia

7.8.2 Mi ga on Measures for Crops and Animals
The MAFW closely monitors cold wave situa on in consulta on with MOES (IMD) and State
Governments. In case of cold wave/frost situa on, States needs to ini ate loca on speciﬁc measures
as outlined in District Crop Con ngency Plans and in consulta on with respec ve State Agricultural
Universi es to minimize its impact. Farmers are to provide light irriga on as per need, immediately
prune damaged ps of branches or shoot, burn leave/waste material in the orchard to create smokeand manage rejuvena on of damaged crops through pruning of dead material, applica on of extra
doses of fer lizer through foliar sprays. Vulnerable crops may be sprayed with water that willparadoxically protect the plants by freezing and absorbing the cold from surrounding air. Agencies
specializing in animal care should provide necessary advisory and support for the care and protec on
185

NATIONAL DISASTER MANAGEMENT AUTHORITY

of animals. In cold wave condi ons, animal and livestock owners must feed adequately withappropriate feed to avoid animal deaths. They must stock suitable feed or forage before cold wave tofeed the livestock. They must avoid exposure of animals to extreme cold. Illustra ve crop protec on
measures during diﬀerent vegeta ve stages are given in Table 7-1.

Table 7-1: Snow and frost – Illustra ve Crop Protec on Measures
Stages of Plant Growth
1 Seedling/ Nursery Stage

Measures to be taken by Farmers
Change of microclimate by smoking around the ﬁeld especiallyduring night
Irriga ng the ﬁeld, smoking the ﬁeld during night

2 Vegeta ve/ Reproduc ve
Stage
3 Harves ng State
Harvest the crop at physiological maturity stage
Crops: Soybean, maize, jowar, arhar, co on, chickpea, and wheat[Source: Safety ps for Cold Wave, available at www.nidm.gov.in]

7.8.3 Climate Change Risk Management
Note: Unlike other sub-sec ons, the responsibility framework given here has a simpler format.
Central/ State Agencies and their Responsibili es#
CentreResponsibility – Centre
State#
Responsibility – State
Medium Term (T2)
• Promote research,monitoring andRecurring/ Regular (RR)
DMD$, SDMA,
MOES,
informa on systems
DDMA, DRD,
• Support and cooperate with
MAFW*,
consistent with the
UDD, AGD,
central agencies
MOEFCC,an cipated GACC impacts
PRIs, ULBs,• Sponsor state-speciﬁc eﬀorts;
NLRTI• Develop Database
SLRTI
support local eﬀorts
management systemrela ng to Climate Change& cold wave
Recurring/ Regular (RR)
• Sensi sa on and awarenesscrea on
Short Term (T1)
• Support na onal CCA eﬀorts• Understanding adapta on• Coordina on with central agencies
needs• Sponsor and promote state-speciﬁc• Study coping mechanisms
eﬀorts and local eﬀorts for GACC
Medium Term (T2)
mi ga on and adapta on
MOEFCC*,
DMD$, SDMA,
Short Term (T1)
MORD,
DRD, UDD,
Develop local adapta on strategies
MoHUA,
DDMA, PRIs,
Long Term (T3)and pilot projects
NDMA,
ULBs, DSJE
Medium Term (T2)
• Implement adapta on
MSJE
Sponsor and promote state-speciﬁc
programs
eﬀorts and local eﬀorts• Promote adap veLong Term (T3)measures in social• Implementa on of GACC
protec on programmes
adapta on programsfor the vulnerable groups• Integrate adap ve measures insocial protec on programmes forthe vulnerable groups
Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcallymen oned will also have both direct and indirect suppor ng role depending on the disaster, loca on and
186

NATIONAL DISASTER MANAGEMENT PLAN

context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role,
while others men oned have a direct or explicit suppor ng role. ($) DMD —Disaster Management
Department: The state government department ac ng as the nodal department for disaster management,
which is not the same in every state/UT.

187

188

7.9.2 Inter-Agency
Coordina on

MOES*, MIB, DOT,MPWR, MHA,
MAFW
MHA, NEC, NDMA

7.9.1 Understanding
MOES
Risk
SDMA*,DMD$

DMD$*,
SDMA,
DDMA, IPRD,
PED*, AGD*

Recurring/ Regular (RR)
Technical support, data collec on
Short Term (T1)
Compiling the baseline data of 2005-2015
Medium Term (T2)
Guidelines and ac on plan
Recurring/ Regular (RR)
• Early Warning and Communica on• Alerts and weather forecasts• In case of forecasts/ warning of extreme/severe nature: Speciﬁc message andinforma on, dissemina on to public at large
through print/ electronic and social media,
SMS, etc. in relevant geographic area
• Speciﬁc message dissemina on to concerned
Power Genera on, Transmission, Distribu on
and Supply oﬃces• Alertness and deployment of NDRF as per
requirement• Monitoring and Review of the Guidelines• Technical support

Note: Unlike other sub-sec ons, the responsibility framework given here has a simpler format.
Thunderstorm, Lightning, Dust, Squall and Strong Winds
Central/ State Agencies & Their Responsibili es
Thema c Area for DRR#
CentreResponsibility
State#

7.9 Thunderstorm, Lightning, Dust, Squall and Strong Winds

Recurring/ Regular (RR)
• To disseminate the informa onreceived from IMD to public at
large• Promote installa ons of lightning
arresters and Doppler Radars• Create a network of community
based early warning systems• Ensure speciﬁc message andinforma on, dissemina on to
public at large throughprint/electronic/social and othermass media at local level

Responsibility
Recurring/ Regular (RR)
• Preparing State Ac on Plan and its
implementa on• Prepare detailed departmental
SoPs by concerned department• Data Collec on
Short Term (T1)
Compiling the baseline data of 20052015

NATIONAL DISASTER MANAGEMENT AUTHORITY

56

Centre#Central/ State Agencies & Their Responsibili es
Responsibility
State#
Responsibility• Periodic review/ upda ng• Ensure Push SMS by various
telecom service operators to allac ve mobile connec ons• Ac vate all concerned DISCOM
oﬃce/oﬃcers• To ensure power cuts⁵⁶ andrestora on of power supply andalso provide emergency power
supply to cri cal facili es• Ac vate the district administra onwith line departments as soon as
speciﬁc warning is received.
• Following and quickly
implemen ng the instruc ons ofcentral/State govt.
• Designate a nodal oﬃcer for
emergency response• Ins tu onalised mul -agency
coordina on with clear role andresponsibility• Rescue and evacua on opera ons
in coordina on with theadministra on, NGOs andvolunteers.
• Emergency medical response• Other necessary related ac ons

At the me of occurrence of thunderstorm power supply may further pose addi onal threats of e lectrocu on. Timely power cut and restora on need to be ensured byconcerned authority as per weather forecast.

Thema c Area for DRR

Thunderstorm, Lightning, Dust, Squall and Strong Winds

NATIONAL DISASTER MANAGEMENT PLAN

189

190

DMD$, SDMA,
DDMA, ULBs,
PRIs

DMD$*,
SDMA, UDD,
DRD, IPRD,
PED, SPWD,
HFWD, AGD*,
AHD
EFD

Recurring/ Regular (RR)
• Disseminate informa on to public on
structural mi ga on measures• Ensure drives to check the structural strengthof trees, old structures• Setup alterna ve or emergency
communica on systems

MHUA*, MOPR,
MEITY, MPWR,MRTH

NDMA*, MOCI,
MORD, MHUA,
DOT, MPWR,
MRTH, MHFW,
MAFW, MOEFCC,
MHA

7.9.4 Inves ng in
DRR – Nonstructural
measures

Central/ State Agencies & Their Responsibili es
Responsibility
State#

7.9.3 Inves ng in
DRR – Structural
measures

Centre#Recurring/ Regular (RR)
• Technical guidance for structural measures• Inter-agency coordina on, review and update
precau onary measures and procedures to befollowed• Follow the Building Bye Laws, makes it
mandatory for all G+2 and above building toinstall lightning conductors /arresters• Promote installa ons of lightning arresters• Start a drive to check the structural strengthof hoardings and similar old structures• Start a drive to check the medical & hospital
equipment at places

Thema c Area for DRR

Thunderstorm, Lightning, Dust, Squall and Strong Winds
Responsibility• Nodal oﬃcer’s act as the contact
person for each dept. / agency• Monitor State/District level plan
• Collect updated data / informa on
and plan for review/upda ng
Recurring/ Regular (RR)
• Inter-agency coordina on andreview and update precau onary
measures and procedures• Ensure building bye laws and makeit mandatory or all ground ﬂoor
plus two and taller buildings to
install lightning conductors/arresters• Promote install of lightning
conductors / arresters in schools,
industries, and Government andprivate buildings• A drive to be undertaken to checkthe structural strength of hoarding
and old structures
Recurring/ Regular (RR)
• Inter-agency coordina on andimplementa on• Prepare Assessment, preparedness
and mi ga on measures reportand implement• Review and update precau onary
measures and procedures

NATIONAL DISASTER MANAGEMENT AUTHORITY

Thema c Area for DRR
Centre#Central/ State Agencies & Their Responsibili es
Responsibility
State#• To deal with power cuts and emergency
power supply• Start a drive to check and maintain/replace
old electrical equipment/cables• To ensure road connec vity and access tovulnerable areas• Create a post of medical staﬀ in respect of
emergency• Hospital preparedness, including training of
human resources• Ensure adherence to crop safety norms• Construc on safe crop storage shelters forfarmers• Set up awareness programs• Compiling data and documenta on• Organising and maintaining data base
• Implementa on of Risk Transfer
Arrangements including mul -hazard
insurance for life and property
Short Term (T1)
• Technical guidance for preparedness• Develop norms for Inter-agency coordina on• Construct shelters/ sheds, bus stands as per
BIS code• Risk Transfer arrangements – policies
framework

Thunderstorm, Lightning, Dust, Squall and Strong Winds
Responsibility• Public awareness and educa on
for early warning response• Iden fy vulnerable places• Follow alerts/warning, advisory,• Disseminate Dos and Don’ts forgeneral public and enable access tosafe places.
• Protec ng property/infrastructureand environment from ﬁre damage• Ensuring strict adherence to ﬁresafety norms• To ensure essen al services andfacili es at vulnerable places• Setup alterna ve or emergency
communica on systems• To ensure early restora on ofelectricity supply to essen alservices during emergencies andrestora on of electric supply at theearliest• To ensure func onal stat e of allelectrical equipment and maintainthe service or replace equipmentfrom me to me• Ensure road connec vity andaccess to vulnerable areas• Ensure appropriate medical staﬀ,
and facili es at place of incident

NATIONAL DISASTER MANAGEMENT PLAN

191

192

Thema c Area for DRR
Centre#Thunderstorm, Lightning, Dust, Squall and Strong Winds
Central/ State Agencies & Their Responsibili es
Responsibility
State#

Responsibility• Strengthen health centres with a
network of paramedical
professionals• Ensure stock piling of life-saving
drugs, de-toxicants, anaesthesia,
availability of Halogen tablets invulnerable areas• Assessment of damage fromweather events• Collec ng post disaster data fromﬁeld and repor ng tostate/na onal level• Implementa on of Risk Transfer
Arrangements including mul hazard insurance for life andproperty
Short Term (T1)
• Establishment of public
informa on / facili es.
• Construc on of thunderstorm safe
crop storage shelters for farmers• Ensuring adherence to ﬁre safety
norms• Protec ng ofproperty/infrastructure and theenvironment from ﬁre damage• Risk Transfer arrangements –implementa on including crop andanimal insurance

NATIONAL DISASTER MANAGEMENT AUTHORITY

7.9.6 Climate
Change Risk
Management

7.9.5 Capacity
Development

Thema c Area for DRR

MOES*, MAFW*,
MOEFCCMOES*, MAFW*,
MOEFCC, NLRTINIDM*, MIB, NDRF,
other ministries

Centre#Medium Term (T2)
• Promote research, monitoring andinforma on systems consistent with thean cipated GACC impacts• Develop database management system
relevant to climate change
Short-Term (T1)
• Understanding GACC adapta on needs• Study GACC coping mechanisms• Develop GACC adapta on mechanisms
Medium & Long Term (T2, T3)• Implement GACC adapta on programs

Recurring/ Regular (RR)
• Support and cooperate withcentral agencies• Sponsor state-speciﬁc eﬀorts;
support local eﬀorts
Recurring/ Regular (RR)
• Sensi sa on and awarenesscrea on• Support na onal CCA eﬀorts• Coordina on with central agencies
DMD$, SDMA,
DDMA, PRIs,
ULBs

Responsibility
Recurring/ Regular (RR)
• Training programme for allconcerned department oﬃcials/
volunteers , CDEF, community, andvolunteers• Conduct training programmes anddrills on usage of various ﬁreprotec on equipment andpreven ve systems• Crea on of public awareness• Extensive IEC campaigns togenerate public awareness throughprint, electronic and social media• Ensure Push SMS by various
telecom service operators to allac ve mobile connec ons.
DMD$, SDMA,
EFD, AGD,
AHD, DRD,
UDD, SLRTI,
PRI, ULB,SPWD, SLRTIDMD$, SDMA,
SDRF, SIRD,SLRTI, IPRD

Central/ State Agencies & Their Responsibili es
Responsibility
State#

Recurring/ Regular (RR)
• Training programme for all concernedfunc onaries, SDRF, CDEF, community, andvolunteers• Extensive IEC campaigns to create awarenessthrough print, electronic and social media• Push SMS by various telecom service
operators to all ac ve mobile connec ons

Thunderstorm, Lightning, Dust, Squall and Strong Winds

NATIONAL DISASTER MANAGEMENT PLAN

193

194

Centre#Central/ State Agencies & Their Responsibili es
Responsibility
State#
Responsibility• Promote adap ve measures in social• Sponsor and promote stateprotec on programmes for the vulnerable
speciﬁc eﬀorts and local eﬀorts forgroupsGACC mi ga on and adapta on
Short –Term (T1)
Develop local adapta on strategies
and pilot projects
Medium -Term (T2)
• Sponsor and promote statespeciﬁc eﬀorts and local eﬀorts• Implementa on of GACC
adapta on programs• Integrate adap ve measures insocial protec on programmes forthe vulnerable groups

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department f ordisaster management, which is not the same in every state/UT.

Thema c Area for DRR

Thunderstorm, Lightning, Dust, Squall and Strong Winds
NATIONAL DISASTER MANAGEMENT AUTHORITY

Responsibility – State
Recurring/ Regular (RR)
• Compile and maintain data on events
like cloud bursts and hailstorms –loca on, event informa on, impacts,
etc.
Short Term (T1)
• Iden fy se lements located on sites
prone to landslides/ unstable slope• Prepare list of se lements andhouseholds facing very high risk
• Mapping landslide-prone areas andiden ﬁca on of unsafe sites forhuman se lements• Compiling the baseline data of 20052015
Medium Term (T2)
• Landslide Hazard Zona on (LHZ)
using diﬀerent kinds of spa al data(aerial photographs, satellite
imagery) employing thetechnological improvements inremote sensing that greatly improvethe mapping accuracy• Amalgama on of local/indigenous
knowledge of landslide-prone areas

MOES, MAFW,
7.10.1 Understanding
MOEFCC, MOST, DOS,Risk
NLRTI**
Medium Term (T2)
• Installing Automa c Weather
Sta ons (AWS)• Deploying Doppler Weather Radar(DWR)

Recurring/ Regular (RR)
• Technical support for HRVCA andrisk assessment• Data Collec on
Short Term (T1)
Compiling the baseline data of
2005-2015

DMD$, SDMA, EFD,
AGD, AHD, DRD,
UDD, SLRTI, PRI,ULB, SPWD, DDMA

Note: Unlike other sub-sec ons, the responsibility framework given here has a simpler format.
Cloudbursts and Hailstorms
Central/ State Agencies and their Responsibili es
Thema c Area for DRR
Centre#Responsibility – Centre
State#

7.10 Cloudburst and Hailstorm

NATIONAL DISASTER MANAGEMENT PLAN

195

196

Centre#

MOES, MAFW,
MOEFCCMHUA, MORD

Thema c Area for DRR

7.10.2 Inter-Agency
Coordina on

7.10.3 Inves ng in
DRR –Cloudbursts and Hailstorms

Recurring/ Regular (RR)
Technical support for slope
stabiliza on and geo-engineering

Recurring/ Regular (RR)
• Providing coordina on, technicalinputs, and support• Organising and coordina ng
central assistance• Eﬀec ve coordina on andseamless communica on among
central and state agencies toensure quick, clear, eﬀec ve
dissemina on of warnings,
informa on and data
• Coordina on among central andstate agencies for a) revised/
updated rules, norms b) adop onof new/updated standards, c)enact/amend laws, regula ons
and d) adopt/ review policies

Responsibility – Stateand technical exper se to preventand mi gate landslides• Inventory of areas that experienced
hailstorm episodes and related
losses, especially crop losses
Recurring/ Regular (RR)
• Prepara on and implementa on of
DM plans and ensure the func oningof agencies with DM tasks• All aspects of disaster risk
management and mainstreaming
DRR• Ensuring coherence and mutual
reinforcement of DRR, CCA anddevelopment$
DMD , SDMA, DDMA • Organising and coordina ng theimmediate response• Coordinate with central agencies• Coordina ng the dissemina on of
warnings to all, down to the last mile
– remote, rural or urban; Regular
updates to people in areas at risk
• Coordina on among state agencies
for ensuring updated norms/ codes
and their implementa on,
enforcement and monitoring
Recurring/ Regular (RR)
DMD$, SDMA, DRD,
Undertake slope stabiliza on measures
UDD, SLRTI, PRI,
on a regular basis
ULB, SPWD, DDMA

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#NATIONAL DISASTER MANAGEMENT AUTHORITY

Recurring/ Regular (RR)
• Awareness raising

MHA, MOES,
MOEFCC, MOST

MAFW, MOES,
MOEFCC, DOS, MSJE,
MWCD, NIDM, NDRF

7.10.5 Capacity
Development

DMD$, SDMA, SDRF,
EFD, AGD, AHD,
DRD, UDD, SIRD,

All departments,
ULBs, PRIs

Responsibility – State
Short Term (T1)
Integrated approach to slope
stabiliza on combining bioengineering(plants, trees) and mechanicalstructures for slope stabilisa on
Medium Term (T2)
• Develop addi onal drainage for quick
and safe ﬂow of storm water• Repair and maintain natural drainage
systems, rivulets, etc. to ensure
unhindered ﬂow of storm water
Recurring/ Regular (RR)
Implementa on of Risk Transfer
Arrangements including mul -hazard
insurance for life and property
Short Term (T1)
• Review of exis ng regula ons andamending them in accordance withsafer building• Amend town and city plans to reducerisks• Risk Transfer Policy Framework
Medium Term (T2)
• Apply concept of mul -level safety to
se lements and the expansion of
towns/ci es – preven on, spa alplanning, organiza on andemergency management

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

7.10.4 Inves ng in
DRR – NonStructural
Measures

Centre#Recurring/ Regular (RR)
• Provide Support• Implementa on of Risk Transfer
Arrangements including mul hazard insurance for life andproperty
Short Term (T1)
• Frame model rules, laws,
guidelines• Risk Transfer Policy Framework

Structural
Measures

Thema c Area for DRR

Cloudbursts and Hailstorms

NATIONAL DISASTER MANAGEMENT PLAN

197

198

Thema c Area for DRR

Cloudbursts and Hailstorms
Centre#• Technical support for post hailstorm management inagriculture• Provide guidance and technicalsupport to SDRF, CDEF,
community, and volunteers• Sponsor ToT programs on various
aspects such as managing
landslide, and search and rescue• Training support for SDRF, CDEF,
community, and volunteers

SLRTI, PRI, ULB,SPWD, DDMA

Responsibility – State
Recurring/ Regular (RR)
• Enhancing capabili es of ULB/PRIs to
prepare and cope with events likecloudbursts and hailstorms• Basic training on coping up withhailstorm for CDEF, community, andvolunteers• Training on various aspects of copingwith cloudburst, hailstorms, searchand rescue• Training on post -hailstorm
management in agriculture• Basic training on coping withcloudburst and hailstorm• Training on various aspects of copingwith cloudburst, hailstorms, searchand rescue• Promo ng culture of awareness,
alertness and preparedness• Awareness genera on programs for
public, u li es, ULBs, PRIs, andindustries• IEC materials and ensure wider
disseminate to general publicthrough all medium• Informa on on safety, care andprotec on of disaster-aﬀectedanimals• Promote use of insurance/ risk
transfer

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#NATIONAL DISASTER MANAGEMENT AUTHORITY

MOES*, MAFW*,
MOEFCC, NLRTICentre#Medium Term (T2)
• Promote research, monitoringand informa on systems
consistent with the an cipated
GACC impacts• Develop Database management
system rela ng to Hailstorm,
Cloudburst & Climate ChangeLong Term (T3)
• Implement GACC adapta on
programs• Promote adap ve measures insocial protec on programmes forthe vulnerable groups

Short-Term (T1)
• Understanding GACC adapta on
needs• Study GACC coping mechanisms• Develop GACC adapta onmechanisms

DMD$, SDMA,
DDMA, EFD, AGD,
AHD, DRD, UDD,SLRTI, PRI, ULB,SPWD, SLRTIResponsibility – State

Recurring/ Regular (RR)
• Support and cooperate with central
agencies• Sponsor state-speciﬁc eﬀorts;
support local eﬀorts• Sensi sa on and awareness crea on• Support na onal CCA eﬀorts• Coordina on with central agencies• Sponsor and promote state-speciﬁc
eﬀorts and local eﬀorts for GACC
mi ga on and adapta on
Short –Term (T1)
Develop local adapta on strategies andpilot projects
Medium -Term (T2)
• Sponsor and promote state-speciﬁc
eﬀorts and local eﬀorts• Implementa on of GACC adapta on
programs• Integrate adap ve measures in social
protec on programmes for thevulnerable groups

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or age ncy with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. (**) Especially IMD, NCMRWF, GSI, ISRO, NRSC, NIASM, ICAR, CSMRS, WIHG, DTRL, Roorkee Univ., IITs, CEDMM/IITRoorkee, BRO, CBRI, CSMRS, DTRL. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department for disastermanagement, which is not the same in every state/UT.

7.10.6 Climate
Change Risk
Management

Thema c Area for DRR

Cloudbursts and Hailstorms

NATIONAL DISASTER MANAGEMENT PLAN

199

200

Note: Unlike other sub-sec ons, the responsibility framework given here has a simpler format. The GLOF is applicable only to the Himalayan region (see2.2.2.11).
Glacial Lake Outburst Flood (GLOF)
Central/ State Agencies and their Responsibili es
Thema c Area for DRR
Centre#Responsibility – Centre
State#
Responsibility – State
Recurring/ Regular (RR)
• Technical support
Recurring/ Regular (RR)
• Regular monitoring of all glacial• Involve local communi es in monitoring of glacial lakes
lakes
and water bodies with high risk – boundary condi ons,
• Data Collec on
discernible terrain changes, etc.
Short Term (T1)
• Data Collec on• Research on glacier mel ng andShort Term (T1)forma on of glacial lake
• Install and opera onalise appropriate warning systems• Mapping all glacial lakes, glaciers
SDMA*, • Mapping and iden ﬁca on of unsafe areas for humanand relevant waterbodies in IHR as
DMD$,
se lements that are likely to be at risk from each of thewellasclassiﬁca
on
based
on
*
MOJS , MOES,
DRD,
likely GLOF (i.e., glacial lake and waterbody wise)poten al GLOF risks
MOST, DOS,
UDD,
• Iden fy se lements located on sites prone to
7.11.1 Understanding• Improving the understanding of
MOEFCC,SLRTI,
landslides/ unstable slope, mostly downstream
poten al GLOF triggering factors
Risk
**
NLRTI
PRI,
(economic, social, etc.)• Provide technical support for
ULB,• Compiling baseline 2005-2015
HRVCA
SPWD
Medium Term (T2)
• Compiling baseline 2005-2015• Amalgama on of local/indigenous knowledge of theMedium Term (T2)
terrain and technical exper se for monitoring of glacial• Priori sa on of glacial lakes/
lake/ waterbodies
waterbodies according to GLOF
• Landslide Hazard Zona on (LHZ) using diﬀerent kinds ofrisk
spa al data employing the technological improvements• Compila on and analysis ofin remote sensing that greatly improve the mapping
proven methods for the controlled
accuracy
release of water from glacial lake
to avoid sudden breach due to

7.11 Glacial Lake Outburst Flood (GLOF)
NATIONAL DISASTER MANAGEMENT AUTHORITY

Centre#MOEFCC*,
MOES, MAFW,
MOJS, MOM,DOS

Thema c Area for DRR

7.11.2 Inter-Agency
Coordina on

Glacial Lake Outburst Flood (GLOF)
Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – Statelandslide or overﬂowing of waterfrom glacial lakes• Understanding the GLOF risk inrela on to the people andproperty located downstream• Dam-break modelling anddownstream vulnerability
assessment
Long Term (T3)
• Reﬁning/ improving computer
simula on models of GLOF risk
• Facilita ng interna onal technicalcoopera on and sharing ofexper seRecurring/ Regular (RR)
Recurring/ Regular (RR)
• Prepara on and implementa on of DM plans and• Providing coordina on, technicalensure the func oning of agencies with DM tasks
inputs, and support• All aspects of disaster risk management and• Organising and coordina ng
mainstreaming DRR
central assistance• Ensuring coherence and mutual reinforcement of DRR,
• Eﬀec ve coordina on and
CCA and development
DMD$,
seamless communica on among
SDMA, • Organising and coordina ng the immediate response
central and state agencies to
DDMA
ensure quick, clear, eﬀec ve• Coordinate with central agencies
dissemina on of warnings,• Coordina ng the dissemina on of warnings to all, down
informa on and data
to the last mile – remote, rural or urban; Regular• Coordina on among central andupdates to people in areas at riskstate agencies for a) revised/• Coordina on among state agencies for ensuring
updated rules, norms b) adop on
updated norms/ codes and their implementa on,of new/updated standards, c)enforcement and monitoring

NATIONAL DISASTER MANAGEMENT PLAN

201

202

Centre#MOJS*, NLRTI*

MOES,
MOEFCC,
MOST, MOJS,NDMA and
NRSC

Thema c Area for DRR

7.11.3 Inves ng in
DRR –Structural
Measures7.11.4 Inves ng in
DRR – NonStructural
Measures

Glacial Lake Outburst Flood (GLOF)
Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
enact/amend laws, regula ons
and d) adopt/ review policies
Medium Term (T2)
Reduce the volume of water in the lake, thus reducing themagnitude of the possible peak discharge at the me ofbreach - controlled breaching of the moraine dam;
DMD$,
construc on of an outlet control structure; pumping or
SDMA,siphoning the water from the lake; and tunnelling
DRD,
through the moraine barrier or under an ice dam.
Recurring/ Regular (RR)
UDD,
Protec ng downstream infrastructure from peak ﬂoods
SLRTI,Long Term (T3)
Technical support
PRI,• Infrastructure downstream (diversion weirs, intakes,
ULB,
bridges, or river bank se lements) can be protected
SPWD,
against a possible surge through proper construc on
DDMAthat allows suﬃcient space for the ﬂow of water andavoids damming• River banks with poten al or old landslides and scree
slopes near se lements should be stabilised
Recurring/ Regular (RR)
Implement risk transfer arrangements
DMD$,
Recurring/ Regular (RR)
Short Term (T1)
SDMA,
• Provide technical support• Review of exis ng regula ons and amending them in
DRD,• Implement risk transfer
accordance with safer building
UDD,
arrangements
SLRTI,• Discourage/ disallow se lements on or near low river
Short Term (T1)
PRI,
terraces within the GLOF hazard zones
Risk Transfer Policy Framework• Risk Transfer Policy Framework
ULB,
Medium Term (T2)
SPWD,
Medium Term (T2)
Frame model rules, laws, guidelines
DDMA• Make legal provisions manda ng infrastructuredevelopers, especially private hydropower developers,

NATIONAL DISASTER MANAGEMENT AUTHORITY

Centre#MOES*, MOST,
DOS, MOJS,
MOEFCC, MSJE,
MWCD, NIDM,
NDRF

Thema c Area for DRR

7.11.5 Capacity
Development

Glacial Lake Outburst Flood (GLOF)
Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – Stateto engage in GLOF early warning and risk reduc on
ac vi es
• Land use zoning to discouraging development in riskyzoneLong Term (T3)
• Amend town and city plans to reduce risks• Apply concept of mul -level safety to se lements andthe expansion of towns/ci es – preven on, spa alplanning, organiza on and emergency management
Recurring/ Regular (RR)
Recurring/ Regular (RR)
• Training for SDRF, CDEF, community, and volunteers• Provide support for awareness• Promo ng culture of awareness, alertness andraising about GLOF and GACC for
preparedness
SDRF, CDEF, community, and•IEC materials; ensure wider dissemina on to generalvolunteers
DMD$,
public through all medium• Training support for SDRF, CDEF,
SDMA,• Dissemina on and communica on of GLOF risk
community, and volunteers
SDRF,
informa on and early warnings to individuals andShort Term (T1)
DRD,
communi es at risk
• Basic training on coping with GLOF UDD,
• Training support for CDEF, community, and volunteers
SLRTI,• ToT programs on various aspects
Medium Term (T2)
PRI,
of GLOF, managing landslide and•Training
inhowtorespond during and a er GLOF
ULB,
search and rescue
events
SPWD,
Medium Term (T2)•
Informa on on safety, care and protec on of disaster• Technical suppo rt from specialised DDMA
aﬀected animals
agencies and research ins tu ons• Enhancing capabili es of PRIs and local communi es at– na onal and interna onal forrisk to monitor and prepare for the likelihood GLOF
strengthening the scien ﬁc and(close to the glacial lake and along the likely path oftechnical capabili es
ﬂood a er a GLOF)

NATIONAL DISASTER MANAGEMENT PLAN

203

204

Centre#Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State• Coordinated research by major• Training on various aspects of GLOF without
ins tutes with interna onal
exaggera ons using best informa on available
collabora on• Understanding early signs, glacial lake characteris cs,• Mechanisms for interlevel of hazards,
governmental collabora on in• How to respond during and a er GLOF events
sharing data and informa on
Long Term (T3)
where relevant• Decentralisa on of risk management ac vi es tocommuni es and local authori es• Promote use of insurance/ risk transfer

Research, Forecas ng,
Early Warning,
1
Informa on Systems,
Zoning, Mapping

Centre#

MOES*, MOD*,MOJS*, MOST,
DOS, MOEFCC,
NLRTI

Glacial Lake Outburst Flood (GLOF)
Sub-Thema c Area forDRR

7.11.6 Climate Change Risk Management
Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
Medium Term (T2)
• Mapping all glacial lakes, glaciers andrelevant waterbodies in IHR based on
Recurring/ Regular (RR)
poten al GLOF risks an cipated underSupport and cooperate with
GACC impacts
DMD$, SDMA,
central agencies
SPWD, WRD,
• Monitoring GACC related aspects of the
Short –Term (T1)
SLRTIglacial system
Sponsor and support state-speciﬁc• Develop Database management system
and local eﬀorts
rela ng to GLOF & Climate Change andtriggering events

Climate Change Risk Management

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. (**) Especially, MOES (IMD), NCMRWF, GSI, CSMRS, WIHG, ISRO, NRSC, DTRL, Roorkee Un iv., IITs, CEDMM/IIT-Roorkee,
CIMFR, BRO and CBRI. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department for disaster management, which is
not the same in every state/UT.

Thema c Area for DRR

Glacial Lake Outburst Flood (GLOF)
NATIONAL DISASTER MANAGEMENT AUTHORITYMOJS*, MOES*,
MOEFCC*, MSJE,
NLRTI

MOJS*, MOES*,
MOEFCC*Climate Change
3 Adapta on(CCA)

Centre#Hazard Risk Vulnerability
2 and Capacity Assessment(HRVCA)

Glacial Lake Outburst Flood (GLOF)
Sub-Thema c Area for
DRR

Climate Change Risk Management
Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – StateLong Term (T3)
Research on climate change impact on
glaciers, the extension of exis ng glacial lakeboundaries, forma on of new glacial lakes,
etc.
Medium & Long Term (T2, T3)• Improve understanding of the enhanced
vulnerabili es of GLOF and its domino
Short –Term (T1)eﬀects due to climate change
Undertake HRVCA as part ofpreparing and periodic revision of• Undertake detailed studies on
DMD$, SDMA,
DM plans / SOPs.
vulnerabili es and risk under climate
SPWD, WRD,
Medium Turn (T2)change for GLOF prone regions
DSJE, SLRTI• Develop State speciﬁc strategies• Assess GACC risks of vulnerable andmarginalised sec ons• Assess GACC risks of vulnerable
and marginalised sec ons• Provide technical support and guidance forcomprehensive HRVCA considering GACC
impacts
Recurring/ Regular (RR)
• Sensi sa on and awarenesscrea on
Short-Term (T1)
• Support na onal CCA eﬀorts• Understanding adapta on needs• Coordina on with central• Study coping mechanisms
agencies
DMD$, SDMA,• Develop adapta on mechanisms• Sponsor and promote stateDDMA, PRIs,
Medium & Long Term (T2, T3)
speciﬁc eﬀorts and local eﬀorts
ULBs• Implement adapta on programsfor GACC mi ga on and• Promote adap ve measures in social
adapta onprotec on programmes for the vulnerable
Short –Term (T1)groupsDevelop local adapta on strategies
and pilot projects

NATIONAL DISASTER MANAGEMENT PLAN

205

206

Centre#Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Medium & Long Term (T2, T3)• Sponsor and promote statespeciﬁc eﬀorts and local eﬀorts• Implementa on of GACC
adapta on programs• Integrate adap ve measures insocial protec on programmes
for the vulnerable groups

Responsibility – State

Climate Change Risk Management

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

Glacial Lake Outburst Flood (GLOF)
Sub-Thema c Area for
DRR

NATIONAL DISASTER MANAGEMENT AUTHORITY

Understanding Risk
Central/ State Agencies and their Responsibili es
Responsibility –State#
Responsibility – State
CentreRecurring/ Regular (RR)
Maintaining preven ve measures as per norms
Short Term (T1)
• Vulnerability Assessment and Establishing
Heat-Health Threshold Temperatures
Recurring/ Regular (RR)
• Strengthening and maintaining monitoring
DMD$, SDMA, RD, DRD,
and data logging systems for temperature,
UDD, DWSD, EDD, PD,• Support forhumidity, etc. required for threshold for heat
EFD, AHD, HD, WCD,
organising training
wave alerts.
PRI/ULB, DDMA, SLRTI• Extend technicalMedium Term (T2)
supportEstablish and maintain community-based
network for sharing alerts
Long Term (T3)
Modify or customise warnings according tothresholds suitable for the State/UT
Recurring/ Regular (RR)
Recurring/ Regular (RR)
•
Upda
ng
HRVCA
DMD$, SDMA, EFD, DSJE,• Promote studies,• Iden ﬁca on and lis ng of Iden fying the
PRI/ ULB, DDMA, SLRTI
documenta on andvulnerable popula on/ communi es/
research
se lements

NDMA Guidelines for Prepara on of Ac on Plan – Preven on and Management of Heatwave, 2017

MOES, MOEFCC,
NDMA, MHFW,MSJEHazard Risk Vulnerability
2 and Capacity Assessment(HRVCA)57

MOES*, MOEFCC,
MEITY, NDMA,
MHFWCentre#Observa on Networks,
Informa on Systems,
Monitoring,
1 Research,
Forecas ng, Early
Warning and Zoning/
Mapping

Sub-Thema c Area for
DRR

Heat Wave

7.12.1 Understanding Risk

This sec on is based on the NDMA guidelines57 for prepara on of Heat-wave Ac on Plan (HAP) listed in Annexure-I.

7.12 Heat Wave

NATIONAL DISASTER MANAGEMENT PLAN

207

208

IMD, MOEFCC,
NDMA, MHFWMHA*, MOSPI, allministries/ depts.

Disaster Data Collec on
4
and Management

Centre#Dissemina on of
3 warnings, data, andinforma on

Sub-Thema c Area for
DRR

Heat Wave

Systema c data
management of dataon disaster damage
and loss assessments

Recurring/ Regular (RR)

• Support fororganising training• Extend technicalsupport

Recurring/ Regular (RR)

DMD$, SDMA, all depts.

DMD$, SDMA, EFD, SLRTI,PRIs/ ULBs, DDMA

Recurring/ Regular (RR)
Systema c data management of data on
disaster damage and loss assessments

Short Term (T1)
• Create awareness preven ve measures• Extensive IEC campaigns to create awarenessthrough print, electronic and social media
Medium Term (T2)
Speciﬁc messages for highly vulnerable groups
such as elderly, young children, outdoor workers
and slum residents

Central/ State Agencies and their Responsibili es
Responsibility –State#
Responsibility – State
Centre• Provide Training &• Iden ﬁca on of groups requiring special
Technical support
a en on
Short Term (T1)
• Studies onvulnerabili es and• Cons tute/ strengthen the mechanisms forcapaci es covering
consulta on with experts and stakeholders
social, physical,• Conduct audit of equipment and humaneconomic,
resource requirements
ecological, gender,social inclusion andequity aspects
Short-Term (T1)
Develop guidelines

Understanding Risk
NATIONAL DISASTER MANAGEMENT AUTHORITY

Centre#Short Term (T1)
Disaster Damage andLosses 2005-2015
baseline

Short Term (T1)
Disaster Damage and Losses 2005-2015 baseline

Understanding Risk
Central/ State Agencies and their Responsibili es
Responsibility –State#
Responsibility – State
CentreCentre#MHFW, NDMA,MHUA, MRD,

Heat Wave
Sub-Thema c
Area for DRR

Overall
1 disastergovernance7.12.2 Inter-Agency Coordina on

Recurring/ Regular (RR)
• Crea ng/ strengthening theins tu onal framework including
assigning nodal agency and nodal
oﬃcials at diﬀerent levels• Preparing state/region-speciﬁc
Heat Ac on Plan
• Team prepara on and streamlining
coordina on mechanisms• Technical inputs for
implementa on based on
experience from diﬀerent loca ons• Collabora on with NGOs/CSOs

DMD$, SDMA, RD,
DRD, UDD, DWSD,
EDD, PD, EFD, AHD,
HD, WCD, PRIs, ULB,
DDMA

Responsibility – State
Recurring/ Regular (RR)
• Ensure the local administra on (city/district)
can understand and meaningfully use all theheatwave-related informa on from various
agencies and health authori es – central andstate• Team prepara on and coordina on - oﬃcials
and agencies are well prepared for the heatwave season• Coordinate with IMD regarding forecasts, early
warning and alert system based on drought
severity
Short Term (T1)
• Appoin ng a State Nodal Agency and Oﬃcer• Preparing/Adap ng Heat Wave Ac on Plan
• Implementa on as per speciﬁc condi ons in thestate

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Inter-Agency Coordina on

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

Sub-Thema c Area for
DRR

Heat Wave

NATIONAL DISASTER MANAGEMENT PLAN

209

210

2

Prepara on
and Response

Heat Wave
Sub-Thema c
Area for DRR

MHUA, MORD,
MOJS, MRTH,
MHRD, MOPR,
MLBE, MPWR,
MHFWCentre#Recurring/ Regular (RR)
Direc ves/ Advisory on shelters,
crea ng awareness, managing
resources, organizing medical
support, strengthening hospital
preparedness

DMD$, SDMA, RD,
DRD, UDD, DWSD,
EDD, PD, EFD, AHD,
HD, WCD, PRD, ULB,
PRIs, DDMA

Responsibility – State

Medium Term (T2)
Develop a clearly deﬁned interagency emergency
response plan with roles and informa on ﬂows
clearly marked out
Long Term (T3)
• Ensuring coherence and mutual reinforcementof DRR, CCA and development• Partnering local ins tu ons with na onal
ins tu ons / experts• Adap ng HAPs developed in other countries/ci es, monitoring and evalua ng
implementa on and impact on mortality andmorbidity
Recurring/ Regular (RR)
• Organising and coordina ng the immediate
response• Coordinate with central agencies• Implemen ng heat ac on plan
• Establishing First Aid/ Medical Aid facili es in
key loca ons• Iden fy vulnerable places and provide drinking
water points at those places and worksites;
also, ORS
• Avoiding outdoor games/sports ac vi es• Livestock preparedness during hot weather ensuring that the livestock has suﬃcient shade
and water on hot days
Short Term (T1)
• Heat treatment wings in hospitals

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Inter-Agency Coordina on
NATIONAL DISASTER MANAGEMENT AUTHORITY

MOES*, MHFW

Centre#Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State• Establishing medical assistance facili es atplaces of mass gathering
Medium Term (T2)
• Implement a system of heat alerts to trigger
early morning shi s for schools and oﬃces/
Rescheduling school and oﬃce mings during
heat-wave season• To construct cool shelters, bus stands, etc thatoﬀer shelter from heat wave
Recurring/ Regular (RR)
Recurring/ Regular (RR)
• Coordina ng the dissemina on of warnings to• Issue Heat wave alerts and weather
all, down to the last mile – remote, rural orforecasts on Short / Medium / Longurban; Regular updates to people in areas at
range dura on
DMD$, SDMA, RD,risk• Public awareness and community
DRD, UDD, DWSD,• Follow the alerts/warning
outreach
EDD, PD, EFD, AHD,
• “Do's-and-Don’ts” during a heat wave should be
Short Term (T1)
HD, WCD, PRD, ULB,
available in local languages and disseminated
PRIs, DDMA
• Documenta on
through media.
• Collec ng Data from States
Short Term (T1)
• Maintaining na onal-level
Collec ng
Data/Informa on necessary for
database
review/update of the planInter-Agency Coordina on

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or age ncy with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

Warnings,
3 Informa on,
Data

Heat Wave
Sub-Thema c
Area for DRR

NATIONAL DISASTER MANAGEMENT PLAN

211

212

MHUA,
MORD,
MOPR

Hazard resistantconstruc on, strengthening,
3 and retroﬁ ng of all lifeline
structures and cri cal
infrastructure
Recurring/ Regular (RR)
Guidance and implementa on

DMD$,
SDMA, EFD,
PRIs, ULBs,
DDMARecurring/ Regular (RR)
Collabora on with technical agencies
implementa on

andCentral/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
Short Term (T1)
• Strengthening/mainstreaming the network
medical assistance facili es• Temperature forecasts and heat alerts will be sent
DMD$,
Short Term (T1)
as bulk messages on mobile phones, local
SDMA,
Direc ve to promote cool roofs
electronic media
Forestand heat reducing integrated
Dept., PRIs,• Electronic screens at busy traﬃc intersec ons anddevelopment
ULBs, DDMA
market places• Eﬀec ve transporta on• Promote cool roofs and heat reducing integrated
development
Short Term (T1)
DMD$,
Short Term (T1)
Guidelines and technical
SDMA, EFD, Ensure incorpora on of protec on from heat wave
support for incorpora on of
PRIs, ULBs,
in mul -hazard resistant features in the planning
protec on from heat wave inDRDA,
and execu on of social housing schemes in heatmul -hazard resistant housing
DDMA
wave prone areas
schemes

Structural Measures

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

MHUA,
MORD,
MOPR

Heat wave shelters and othermeasures

MHUA,
MORD,
MOJS,
MRTH,
MOPR

Centre#2 Social Housing Schemes

1

Sub-Thema c Area for DRR

Heat Wave

7.12.3 Inves ng in DRR – Structural Measures
NATIONAL DISASTER MANAGEMENT AUTHORITY

Risk Transfer

2

MFIN*, NDMA,MHA, MAFWMHUA, MORD,
MOJS, MRTH,
MHRD, MOPR,
MLBE, MPWR,
MHFWCentre#Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State• Laws and Regula ons• Ins tu onal arrangements• Improving the forest coverage and green
EFD,
areas
• Laws and Regula ons
PRIs, ULBs,• Promote use of building materials that
• Guidance and Support
UDD, DRD,
provide protec on from heat
• Improving the forest coverage and green
DDMA,• Promote designs to reduce heat island
areas
PRIs, ULBs
eﬀects in urban areas• Facilitate integrated development plansthat can cope be er with heatwave
condi ons
Recurring/ Regular (RR)
Recurring/ Regular (RR)
Implementa on of Risk Transfer
Implementa on of Risk Transfer
Arrangements including mul -hazard
DFIN*, DMD$,
Arrangements including mul -hazard
insurance for life and property
SDMA, DAG
insurance for life and property
Short Term (T1)
Short Term (T1)
Policy Framework
Policy Framework

Non-Structural Measures

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

Techno-Legalregimes1

Heat Wave
Sub-Thema c
Area for DRR

7.12.4 Inves ng in DRR – Non-Structural Measures

NATIONAL DISASTER MANAGEMENT PLAN

213

214

Training

3

Awareness
Genera on

2 Curriculum Development

1

Heat Wave
Sub-Thema c Area for
DRR

Recurring/ Regular (RR)
• Support awareness campaigns/ IEC• Support network of civil society
organiza ons for awareness genera on
about coping with heat wave

DMD$, SDMA, UDD,
RD, HD, DDMA

Recurring/ Regular (RR)
• Promo ng awareness, alertness
and preparedness• Training programs for public, PRIs/
ULBs• Carry out mass media campaigns inheat-wave prone areas• Create awareness of coping withheat wave and HAP

NDMA,
MOIB

Short Term (T1)
Inclusion of heat wave and similar
issues in various curriculum

Short Term (T1)
DMD$, SDMA, SDMI,
Inclusion of heat wave and similar issues
EDD, SLRTI, DDMAin various curriculum

MHFW,
NLRTI

DMD$, SDMA, SDRF,
RD, DRD, UDD, DWSD,
EDD, PD, EFD, SIRD,SLRTI, AHD, HD, WCD,
PRI/ ULB, DDMA

Responsibility – State
Recurring/ Regular (RR)
• Train key oﬃcials regarding pre,during and post heat-wave season
ac vi es• Training for CDEF, community, andvolunteers• Training for deployment of Rapid
Medical Response Teams• Training on heat-wave speciﬁc
health care for vulnerable groups

Capacity Development

MHUA,
MORD,
NDRF,
MHFW,
NIDM, MYAS

Centre#Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Recurring/ Regular (RR)
• Training and orienta on programs forcentral govt. staﬀ, other direct
stakeholders• Training support for youth through
NCC, NYKS, Scouts and Guides and NSS,
SDRF, CDEF, community, andvolunteers

7.12.5 Capacity Development
NATIONAL DISASTER MANAGEMENT AUTHORITY

Voca onal Training/ Skilldevelopment

MSJE

DMD , SDMA, SIDM,
DSJE, PRIs, ULBs,
DDMA$

DMD$, SDMA, RD,SLSDA, DDMA

Short Term (T1)
Promo ng skill development for -hazard
resistant construc on with emphasis onprotec on from heat in heat-wave prone
areas for diﬀerent types of housing andinfrastructure

MHUA,
MOPR,
NDMA,
NLSDA,MSDE
Recurring/ Regular (RR)
• Guidance to addressing heat wave
emergencies in relevant areas• Promote gender sensi ve andequitable approaches for awarenessraising

DMD$, SDMA, UDD,
RD, SDRF, F&ES, CDEF,
Police, DDMA

Recurring/ Regular (RR)
Promo ng the planning and execu on of
emergency drills

Recurring/ Regular (RR)
Incorpora ng gender sensi ve andequitable approaches in capacity
development for coping with heatwave emergencies

Responsibility – State
Recurring/ Regular (RR)
• Iden fy and resolve
communica on gaps between
par cipa ng departments,
partners and the public• Joint execu on of emergency drills
with local bodies to address heatwave emergencies in relevant
areas
Recurring/ Regular (RR)
Conduct training programmes
Short Term (T1)
Crea ng ToT teams for diﬀerent
trades relevant to heat-wave
protec on in the construc on of
diﬀerent types of housing andinfrastructure

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#MHUA,
MOPRCentre#Capacity Development

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

Empowering women,
marginalised
6communi es, SC/ST, andpersons with disabili es

5Mock Drills/
4
Exercises

Heat Wave
Sub-Thema c Area for
DRR

NATIONAL DISASTER MANAGEMENT PLAN

215

216

Hazard Risk
Vulnerability and
2 Capacity
Assessment(HRVCA)

Research,
Forecas ng, Early
1 Warning, DataManagement,
Zoning, Mapping

Heat Wave
Sub-Thema c
Area for DRR

Climate Change Risk Management

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
Short Term (T1)
• Develop GACC impact
scenarios relevant for
occurrence of heat wave
• Improving the assessmentand forecas ng of
Recurring/ Regular (RR)
intensity, severity of• Support and coordina on
extreme weather events
MOES*, MOEFCC,
DMD $*, SDMA, UDD, • Research on local threshold and climate change• Improving the assessment
NDMA, MHFW,
DRD, HD, SLRTI
adapta on
and monitoring of
NLRTI
intensity, severity of• Improving the dissemina on informa on on of
extreme weather events &GACC and adapta on
forecas ng
Medium Term (T2)
Develop
Databasemanagement system rela ng
to Heat Wave & climatechangeRecurring/ Regular (RR)
Incorporate updated info on GACC in HRVCA while
preparing or periodic revision of DM plans
Recurring/ Con nuous (RR)
Short Term (T1)
Impact Assessment, Periodic•
Assessheat
wave
risk and vulnerability due to
MOES*, MOEFCC, review and evalua on
DMD$*, SDMA, UDD,GACC
NDMA, MHFW,
Short Term (T1)
DRD, HD, DSJE, SLRTIMSJE, NLRTICrea on of data bank and• Update heat-wave vulnerability maps based on
hazards risk & vulnerable
projected GACC impacts
mappingMedium Term (T2)
• Assess GACC risks of vulnerable and marginalised
sec ons
Centre#7.12.6 Climate Change Risk Management
NATIONAL DISASTER MANAGEMENT AUTHORITY

Climate Change
3 Adapta on(CCA)

Heat Wave
Sub-Thema c
Area for DRR

Climate Change Risk Management
Central/ State Agencies and their Responsibili es
Centre#Responsibility – Centre
State#
Responsibility – State
Medium Term (T2)
• Assess the trends of heatwave risk under GACC
scenarios• Assess GACC risks ofvulnerable andmarginalised sec ons• Provide technical support
and guidance forcomprehensive HRVCA
considering GACC impacts
Short-Term (T1)
Recurring/ Regular (RR)
• Understanding CCA needs• Sensi sa on and awareness crea on• Study GACC coping• Support na onal CCA eﬀorts
mechanisms• Coordina on with central agencies• Develop CCA mechanisms• Sponsor and promote state-speciﬁc eﬀorts andlocal eﬀorts for GACC mi ga on and adapta on
Medium & Long Term (T2,T3)
Short Term (T1)
• Formulate strategy under*
MOES ,MOST,
Develop local adapta on strategies and pilot projects
GACC like cool-roof, DMD$, SDMA, HFWD,
DOS,
MOJS,
Medium Term (T2)green energy, reducing DDMA, PRIs, ULBs
MOEFCC
Sponsor and promote state-speciﬁc eﬀorts and local
omission CO2
eﬀorts• Promote solar energy atLong Term (T3)roof top at every house• Implementa on of GACC adapta on programsor retroﬁ ng• Promote appropriate combina ons of Green and• Implement adapta on
Blue infrastructure approach
programs• Integrate adap ve measures in social protec on• Promoteappropriate
programmes for the vulnerable groups
combina ons of GreenNATIONAL DISASTER MANAGEMENT PLAN

217

218

Centre#Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
and Blue infrastructure
approach• Promoteadap vemeasuresinsocialprotec on programmes
for the vulnerable groups

Climate Change Risk Management

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DM D—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

Heat Wave
Sub-Thema c
Area for DRR

NATIONAL DISASTER MANAGEMENT AUTHORITY

Informa on Systems,
1 Monitoring,Research

Centre#

MOEFCC*, MLBE, MCF, MCOAL,
MCA, MPFI, MHIPE, MLBE,MMSME, MOM, MNRE, MPNG,
MOP, MOR, MSTL, MTEX

Chemical (Industrial) Disasters
Sub-Thema c Area
for DRR

7.13.1 Understanding Risk

7.13 Chemical (Industrial) Disasters

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Short Term (T1)
• Online informa on system on
HAZCHEM conforming tointerna onal standards• Chemical Accident Informa on
Repor ng System• Informa on on dealing with
HAZCHEM
Medium Term (T2)
• Research on eﬀec ve managementof HAZCHEM
DMD$,
SDMA, INDD,• Na onal Hazardous Waste
SPCB, DISH,
Informa on System (NHWIS)DDMALong Term (T3)
• Promote research and studies –both in-house and extra-mural byproviding research grants toresearchers and ins tu ons• Promote R&D for indigenous
manufacture of quality personal
protec on equipment most ofwhich are currently imported• Studies on improving occupa onal
safetyRecurring/ Regular (RR)
Support and coordina on

Responsibility – State

Understanding Risk

NATIONAL DISASTER MANAGEMENT PLAN

219

220

MHA , MOSPI, All Ministries/
Depts.

Hazard Risk
Vulnerability and4Capacity Assessment(HRVCA)*

MOEFCC*, MLBE, NDMA, NIDM,
MOST, MCF, MCOAL, MOCI,MPFI, MHIPE, MLBE, MMSME,
MOM, MNRE, MPNG, MOP,
MSTL, MTEX, MSJE

3 Monitoring

Disaster Data
5 Collec on andManagement

Recurring/ Regular (RR)
Monitoring compliance with safety
norms for HAZCHEM and proper
disposal of hazardous waste

MOEFCC*, MCF, MCOAL, MOCI,MPFI, MHIPE, MLBE, MMSME,
MLBE, MOM, MNRE, MPNG,
MOP, MSTL, MTEX
Recurring/ Regular (RR)
• Promote studies, documenta on
and research• Studies on vulnerabili es andcapaci es covering social, physical,
economic, ecological, gender,social inclusion and equity aspects• Provide technical support andguidance for comprehensive
HRVCA
Recurring/ Regular (RR)
Systema c data management of dataon disaster damage and loss
assessments

Recurring/ Regular (RR)
Guidance, Data Management

Recurring/ Regular (RR)
Systema c data management ofdata on disaster damage and loss
assessments

DMD$,
SDMA, DSJE,
DISH, PRIs,
ULBs, DDMA

DMD$,
SDMA, alldepts.

Responsibility – State
Medium Term (T2)
• Industrial zones on basis ofhazard poten al and eﬀec ve
disaster management for worst
case scenarios for MAH Units• Separate zoning for si ng of
MAH units• Carry out the mapping andrelated studies in collabora onwith central agencies/ technicalorganiza ons
Recurring/ Regular (RR)
Monitoring compliance withsafety norms for HAZCHEM andproper disposal of hazardous
waste

Understanding Risk

Recurring/ Regular (RR)
Undertake HRVCA as part ofpreparing and periodic revision of
DM plans
Short Term (T1)Cons tute/ strengthen themechanisms for consulta on withexperts and stakeholders

DMD$,
SDMA, INDD,SPCB, DISH,
DDMA

DMD$,
SDMA, INDD,SPCB, DISH,
DDMA

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

2 Zoning/ Mapping

Centre#

MOEFCC*, MCF, MCOAL, MOCI,MPFI, MHIPE, MLBE, MMSME,
MOM, MNRE, MPNG, MOP,
MSTL, MTEX, MLBE, DOS

Chemical (Industrial) Disasters
Sub-Thema c Area
for DRR

NATIONAL DISASTER MANAGEMENT AUTHORITY

Centre#Short Term (T1)
Disaster Damage and Losses 20052015 baseline

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Short Term (T1)
Disaster Damage and Losses
2005-2015 baseline

Responsibility – State

Understanding Risk

DMD$, SDMA,
RD, INDD,SPCB, DISH,

Recurring/ Regular (RR)
Organising and coordina ng central
assistance
Recurring/ Regular (RR)
Eﬀec ve coordina on and seamless
communica on among central and stateagencies to ensure quick, clear, eﬀec ve

MOEFCC*, MCF,
MCOAL, MOCI, MCA,MPFI, MHIPE, MLBE,MMSME, MOM,
MNRE, MPNG, MOP,
MOR, MSTL, MTEX

2 Response

Warnings,
3 Informa on, Data
Dissemina on

DMD$, SDMA,
RD, INDD,SPCB, DISH,
DDMA, PRIs,
ULBs, IBTA

MOEFCC , MCA

MOEFCC , NDMA,
MCA

*

*

Recurring/ Regular (RR)
Providing coordina on, technical inputs,
and support

DMD$, SDMA,
RD, INDD,SPCB, DISH,
DDMA, PRIs,
ULBs, IBTA

State#Overall disaster1
governanceChemical (Industrial) Disasters
Central/ State Agencies and their Responsibili es
Sub-Thema c
Area for DRR
Centre#Responsibility – Centre

7.13.2 Inter-Agency Coordina on

Recurring/ Regular (RR)
Coordina ng the dissemina on of
warnings to all, down to the last mile

Recurring/ Regular (RR)
• Organising and coordina ng theimmediate response• Coordinate with central agencies

Responsibility – State
Recurring/ Regular (RR)
• Prepara on and implementa on of
DM plans and ensure thefunc oning of agencies with DM
tasks• All aspects of disaster risk
management and mainstreaming
DRR

Inter-Agency Coordina on

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

Chemical (Industrial) Disasters
Sub-Thema c Area
for DRR

NATIONAL DISASTER MANAGEMENT PLAN

221

222

Responsibility – State– remote, rural or urban; Regular
updates to people in areas at risk
Recurring/ Regular (RR)
Coordina on among state agencies
for ensuring updated norms/ codes
and their implementa on,
enforcement and monitoring

State#
DDMA, PRIs,
ULBs, IBTA
DMD$, SDMA,
RD, SPCB, DISH,
DDMA, PRIs,
ULBs, IBTAInter-Agency Coordina on

1• Shelters, evacua on, andsupport facili es• Mul ple routes forreliable access andescape• Decontamina on
facili es

Sub-Thema c Area for
DRR

Chemical (Industrial) Disasters

MOEFCC*,NDMA,NLRTI**

Centre#7.13.3 Inves ng in DRR – Structural Measures
Central/ State Agencies and their Responsibili es
Responsibility –State#
Responsibility – State
CentreShort Term (T1)
• Iden ﬁca on of shelters with basic facili es like drinking
water and ﬁrst aid for chemical exposure
DMD$, SDMA,
Recurring/
INDD, SPCB,• Ensuring water storage facili es and sources for water
Regular (RR)
DISH, DDMA,
for accident containment and ﬁreﬁgh ng opera ons
Technical
PRIs, ULBs,
Medium Term (T2)
supportIBTA• Providing wide roads and mul ple routes in theindustrial area to allow quick access by ﬁrst responders
and to ensure escape pathways

Structural Measures

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this sym bol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

Chemical (Industrial) Disasters
Central/ State Agencies and their Responsibili es
Sub-Thema c
Area for DRR
Centre#Responsibility – Centre
dissemina on of warnings, informa on anddata
MOEFCC*, MHA, BIS,
Recurring/ Regular (RR)
NDMA, MCF, MCOAL,
Coordina on among central and state
MOCI, MCA, MPFI,
Non-structuralagencies for a) revised/ updated rules,
4
MHIPE, MLBE,
measuresnorms b) adop on of new/updated
MMSME, MOM,
standards, c) enact/amend laws,
MNRE, MPNG, MOP,
regula ons and d) adopt/ review policies
MOR, MSTL, MTEX

NATIONAL DISASTER MANAGEMENT AUTHORITY

Centre#Central/ State Agencies and their Responsibili es
Responsibility –State#
Responsibility – State
Centre• Establish decontamina on facili es for oﬀ -site
emergencies of MAH units

Structural Measures• Laws Regula ons,
Techno-Legalregimes• Enforcement,
1Compliance andMonitoring• Ins tu onal
Arrangements

Centre#

MOEFCC*, MLBE, MCF,
MCOAL, MOCI, MCA, MPFI,MHIPE, MLBE, MMSME,
MOM, MNRE, MPNG, MOP,
MOR, MSTL, MTEX

Chemical (Industrial) Disasters
Sub-Thema c Area
for DRR

7.13.4 Inves ng in DRR – Non-Structural Measures

Medium Term (T2)
Review exis ng rules,
regula ons, laws par cularlyof land use and si ng of
hazardous industries

DMD$, SDMA,
DDMA, SPCB,DISH, EFD,INDD, PRIs,
ULBs, IBTA

Non-Structural Measures
Responsibility – State
Medium Term (T2)
• Formulate/ strengthen rules, norms, andlaws such as factories rules consistent
with that of ensuring greater safety inhazardous industries and to reduce
likelihood of disasters• Review land use norms for the si ng of
hazardous industries• Empower factory inspectorates to takelegal ac ons for noncompliance of MSIHC
Rules• Review rules to grant compensa on tochemical accident vic ms to improvethem in favour of vic ms• Amend land use norms to ensure greater
safety and to ensure buﬀer zo nes without
human se lements in close proximity ofhazardous industries

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. (**) NBCC, BMTPC, CBRI, SERC, IE(I). ($) DMD —Disaster Management Department: The state government department
ac ng as the nodal department for disaster management, which is not the same in every state/UT.

Sub-Thema c Area for
DRR

Chemical (Industrial) Disasters

NATIONAL DISASTER MANAGEMENT PLAN

223

224

MFIN*, NDMA, MHA, MAFW

3 Risk Transfer

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State• Strengthen the conduct of safety audits
and enforcement of disaster preven on
norms
Medium Term (T2)
• Promote private par cipa on in oﬀ-site
disaster management facili es•
Provide legal support for Mutual
Recurring/ Regular (RR)
DMD$, SDMA,
Assistance Groups among industries
Guidance
DDMA, IBTA
within clusters• Encourage private par cipa on inenhancing oﬀ-site disaster response andRisk Management
Recurring/ Regular (RR)
Implementa on of Risk
Recurring/ Regular (RR)
Transfer Arrangements
Implementa on of Risk Transfer
including mul -hazard
DFIN*, DMD$,
Arrangements including mul -hazard
insurance for life andSDMA, DAG
insurance for life and property
property
Short Term (T1)
Short Term (T1)
Policy Framework
Policy Framework

Non-Structural Measures

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. (**) ASSOCHAM, FICCI, CII, AIAI, etc. ($) DMD —Disaster Management Department: The state government department
ac ng as the nodal department for disaster management, which is not the same in every state/UT.

MCA*, MOEFCC, NDMA,MCF, MOCI, MPFI, MHIPE,
MFIN, Private sector**

Centre#PublicPrivate2Partnerships

Chemical (Industrial) Disasters
Sub-Thema c Area
for DRR

NATIONAL DISASTER MANAGEMENT AUTHORITY

2

Curriculum
Development

1 Training

Centre#MHFW, NLRTIMHRD, AICTE, IITs, UGC,
NIDM

NIDM, NDRF, CAPF, MYAS,
MOD

MOEFCC*, NIDM, MLBE,
MCF, MCOAL, MOCI, MCA,MPFI, MHIPE, MLBE,MMSME, MOM, MNRE,
MPNG, MOP, MOR, MSTL,
MTEX, MYAS

Chemical (Industrial) Disasters
Sub-Thema c Area forDRR

7.13.5 Capacity Development
Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
Recurring/ Regular (RR)
• Training and orienta on
Recurring/ Regular (RR)
DMD$, SDMA, SDRF,
programs on management
Training and orienta on programs
ATI, SIRD, SPCB,
and disposal of HAZCHEM
for state govt. staﬀ, and other
INDD, DDMA, PRIs,
stakeholders such as CDEF,• Training support for SDRF,
ULBs, IBTA, SLRTI
community, and volunteers
CDEF, community, andvolunteers
Recurring/ Regular (RR)
Training programs of youth such as
NSS, NYS, Scouts and Guides, andShort Term (T1)
NSS in DRR
Incorpora ng disaster response, DMD$, SDMA, SIDM,
Short Term (T1)search and rescue in the training ATI DDMA, PRIs,
Incorpora ng disaster response,
programs of youth such as NSS,ULBs, IBTA
search and rescue in in the training
NYS, Scouts and Guide
programs of youth such as village
volunteers, civil society, village/ward
level leaders
Recurring/ Regular (RR)
Recurring/ Regular (RR)
Promote inclusion of more
Professional Bodies
Add more specializa ons andspecializa ons and elec ves on
and Councils in
elec ves on HAZCHEM and chemical
HAZCHEM and chemical disaster States, IBTA
disaster management
management
Short Term (T1)
• Review and address gaps in
Short Term (T1)
medical educa on at diﬀerent
HD, DDMA
Implement the recommenda ons oflevels with respect toreviews in all educa onal ins tu ons
emergency medical responsein the state/UT• Review the specializa onneeds in the area of dealing

Capacity Development

NATIONAL DISASTER MANAGEMENT PLAN

225

226

3

Awareness
Genera on

Centre#

MOEFCC, NDMA, NDRF,
CAPF, NIDM, MLBE, MCF,
MCOAL, MOCI, MCA, MPFI,MHIPE, MLBE, MMSME,
MOM, MNRE, MPNG, MOP,
MOR, MSTL, MTEX

Central Boards of Educa on

Chemical (Industrial) Disasters
Sub-Thema c Area for
DRR

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
with vic ms of chemicaldisasters• Review and take steps toimprove the facili es required
to treat vic ms of chemicaldisasters
Short Term (T1)
Short Term (T1)Introducing basic DM concepts State Educa on
Introducing basic DM concepts andand precau ons related to Boards
precau ons related to HAZCHEMHAZCHEM
Short Term (T1)
Short Term (T1)
• Carry out mass media• Carry out mass media campaigns
campaigns• Promote culture of disaster risk
• Promote culture of disasterpreven on, mi ga on, and be errisk preven on, mi ga on,risk management
and be er risk management
Medium Term (T2)
• Promotea tudeand• Promote a tude and behaviour
behaviour change in thechange in the awarenessawareness campaigns/ IEC
campaigns/ IEC
DMD$, SDMA, IPRD,
Medium Term (T2)
SDRF, F&ES, CDEF,• Promote use of insurance/ risk
• Promote use of insurance/ Police, DDMA, PRIs,transfer
ULBs, IBTA
risk transfer• Strengthening network of civil• Promote Community Radio
society organiza ons for awarenessgenera on about DRR and DM• Strengthening network ofcivil society organiza ons for• Focus on safety and complianceawareness genera on about
with SOP at workplace for workers
DRR and DM• Informa on on safety, care and• Focus on safety andprotec on of disaster-aﬀectedcompliance with SOP atanimals
workplace for workers

Capacity Development
NATIONAL DISASTER MANAGEMENT AUTHORITY

Recurring/ Regular (RR)
Incorpora ng gender sensi ve
and equitable approaches incapacity development covering
all aspects of disastermanagement

MSJE*, NDMA, NIDM

MOEFCC*, NDMA, NIDM,
MORD, MHUA

Empowering
women,
5 marginalised, andpersons withdisabili es

Community-Based
6 Disaster
Management

DMD$, SDMA, INDD,
SDRF, F&ES, CivDef,
Police, DDMA, PRIs,
ULBs, IBTA

Recurring/ Regular (RR)
Joint planning and execu on of
emergency drills

Responsibility – State

Capacity Development

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symb ol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

Recurring/ Regular (RR)
Incorporang gender sensi ve and
DMD$, SDMA, SIDM,
equitable approaches in capacity
ATI, SLRTI, DDMA,
development covering all aspects of
PRIs, ULBs, IBTA
disaster management at the state,
district, and local levels
Recurring/ Regular (RR)
• Strengthen ability of communi es
Recurring/ Regular (RR)
DMD$, SDMA,
to manage and cope with disasters
Promo on,
Guidance,
and DDMA, PRIs, ULBs,
based on a mul -hazard approach
SupportIBTA• Training for PRI, SHG, NCC, NSS,
Youth, local community
organiza ons

Recurring/ Regular (RR)
Promo ng the planning andexecu on of emergency drills by
all ministries and in the all
States/UTS

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Chemical (Industrial) Disasters
Sub-Thema c Area for
DRR
Centre#
MOEFCC*, NDMA, NDRF,
Armed Forces, CAPF, MCF,
Mock Drills/
MCOAL, MOCI, MCA, MPFI,
4Exercises
MHIPE, MLBE, MMSME,
MOM, MNRE, MPNG, MOP,
MOR, MSTL, MTEX

NATIONAL DISASTER MANAGEMENT PLAN

227

228

NDMA
DAE*, MHA,
MOD,
Port
Authori es

MHA*,
MOSPI, allministries/
depts.

Se ng up reliable and dedicatedcommunica on network

Establish monitoring mechanism toprevent illicit movement ofradioisotopes

Disaster Data Collec on andManagement

2

3

4

Short Term (T1)
Disaster Damage and Losses 2005-2015 baseline

Recurring/ Regular (RR)
Systema c data management of data on disasterdamage and loss assessments

Short Term (T1)
Install radia on detectors at all iden ﬁed loca ons
at border posts, and ports.

DMD$,
SDMA,
all depts.

DMD$

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Short Term (T1)
Establish set ups for monitoring, warning including
DMD$,
IERMON system network
SDMA,
Medium Term (T2)
DDMAStrengthening radia on Monitoring and Detec on
Systems in the Public Domain
Short Term (T1)
To set up reliable and dedicated communica on
DMD$
network at the na onal level for the last mileconnec vity

Recurring/ Regular (RR)
Systema c data
management of data on
disaster damage and loss
assessments
Short Term (T1)
Disaster Damage andLosses 2005-2015 baseline

Short Term (T1)
Coordina on with andsupport to central agencies

Short Term (T1)
To extend logis cs

Short Term (T1)
Follow and support thesafety and regulatory
requirements

Responsibility – State

Understanding Risk

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

DAE , MHA,MOD

Monitoring and warning network
Strengthening Radia on Monitoring*

Centre#1

Sub-Thema c Area for DRR

Nuclear and Radiological7.14.1 Understanding Risk

7.14 Nuclear and Radiological Emergencies
NATIONAL DISASTER MANAGEMENT AUTHORITY

Overall disastergovernance

AERB*, BIS

Non-structural
measures

4

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
Recurring/ Regular (RR)
Recurring/ Regular (RR)
DMD$, SDMA, RD,• Prepara on and implementa on of DM plans andProviding coordina on, technical
HFWD, DDMA,
ensure the func oning of agencies with DM tasks
inputs, and support
PRIs, ULBs
• All aspects of disaster risk management andmainstreaming DRR
Recurring/ Regular (RR)
Recurring/ Regular (RR)
DMD$, SDMA, RD,
Nodal ministry for central
Organising the immediate response and seeking
DDMA, PRIs, ULBs
assistanceassistance of central agencies
Recurring/ Regular (RR)
Recurring/ Regular (RR)$
Quick, clear, eﬀec ve
DMD , SDMA, RD,
Dissemina on of warnings to all, down to the lastdissemina on among central and
DDMA, PRIs, ULBs
mile – remote, rural or urban; Regular updates tostate agencies
people in areas at risk
Short Term (T1)
• Revised/ Updated rules, norms,
Short Term (T1)and codes
DMD$, SDMA, RD,
Adap ng the norms/ codes as per State’s
DDMA, PRIs, ULBs
• New/Updated standards
requirement, enforcement, monitoring• Review and improve laws,
regula ons and policies

Inter-Agency Coordina on

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, depar tment or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

DAE*, MHA,
NEC, NDMA

Warnings,
Informa on, Data

DAE*, MHA

DAE*

32 Response

1

Nuclear and Radiological
Sub-Thema c
Area for DRR
Centre#7.14.2 Inter-Agency Coordina on

NATIONAL DISASTER MANAGEMENT PLAN

229

230

• Decontamina on
centres• Strengthen protec on
systems of nuclear
facili es

2

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
Short Term (T1)
• Iden ﬁca on safe buildings and sites to serve as
temporary shelters near nuclear installa ons
Recurring/ Regular (RR)
DMD$, SDMA,
Technical support
DDMA, PRIs, ULBs • Construc on of mul -purpose shelters near
nuclear installa ons• Ensure compliance with relevant building codes
Short Term (T1)
Strengthen physical protec on
DMD$, SDMA,
Recurring/ Regular (RR)
systems along with proper
DDMA, PRIs, ULBs Coordina on with and support to central agencies
inventory and control proceduresof the radia on sources

Structural Measures2

Improve regulatory coverNuclear and Radiological
Sub-Thema c Area for
DRR
1
Se ng of safety
standards and othersafety and regulatory
documents
AERB*

AERB*,
DAE

Centre#Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Short Term (T1)
Prepare safety and regulatory documents for all
nuclear/ radiological applica ons, transport, safe
DMD$
custody, waste handling, personal safety,
medical aspects etc.
Short Term (T1)
To set up regional regulatory centres for be er
DMD$coverage of safety and regulatory aspects

7.14.4 Inves ng in DRR - Non-Structural Measures

Recurring/ Regular (RR)
To enforce compliance

Short Term (T1)
To follow the requirements

Responsibility – State

Non-Structural Measures

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has o r is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

DAE*

Shelters

1

Centre#NDMA,
NBCC,
BMTPC,CBRI,
SERC, IE(I)

Nuclear and Radiological
Sub-Thema c Area forDRR

7.14.3 Inves ng in DRR – Structural Measures
NATIONAL DISASTER MANAGEMENT AUTHORITYMFIN*, NDMA,MHA, MAFW

Centre#NDMA, DAE*,
MCA*, MCF,
MOCI, MPFI,MHIPE, MFIN
Recurring/ Regular (RR)
Implementa on of Risk Transfer Arrangements
including mul -hazard insurance for life andproperty
Short Term (T1)
Policy Framework

Guidance

Recurring/ Regular (RR)

DFIN*,
DMD$,
SDMA,
DAG

DMD$,
SDMA,
DDMA

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Recurring/ Regular (RR)
Implementa on of Risk Transfer
Arrangements including mul hazard insurance for life andproperty
Short Term (T1)
Policy Framework

Recurring/ Regular (RR)
Promote private par cipa on indisaster management facili es

Responsibility – State

Non-Structural Measures

1 Training

Nuclear and Radiological
Sub-Thema c Area
for DRR
Centre#MHA, DAE*, MHFW,NDMA, MYAS

MHA, DAE*, NDRF,
CAPF, MYAS, Others**

7.14.5 Capacity Development
Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Recurring/ Regular (RR)
• Enhancing public awareness on
DMD$, SDMA,
nuclear/radiological applica on, safety.
SDRF, DDMA,
Training of ﬁrst responders, staﬀ
CDEF, PRIs,
ULBs,• Training support for SDRF, CDEF,
community, and volunteers
Recurring/ Regular (RR)
Training of medical and paramedics on
DMD$, DDMA,
various aspects of medical management of
PRIs, ULBs,
radiological events

Recurring/ Regular (RR)
To follow and comply

Recurring/ Regular (RR)
Training of state police , CDEF,
community, and volunteers

Responsibility – State

Capacity Development

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

4 Risk Transfer

Nuclear and Radiological
Sub-Thema c Area for
DRR
3
Public Private
Partnerships

NATIONAL DISASTER MANAGEMENT PLAN

231

232

Developing Capability
for response

MHA*, NCMC, DAE,
MOD, AERB

4 Mock Drills/ Exercises

5

DAE*, NDMA, NDRF, All
Government
Ministries/ Agencies,
Armed Forces, CAPF

MHRD*, DAE

DAE*, NDMA, NDRF,
CAPF, NIDM

Curriculum
Development

Centre#Awareness
3
Genera on

2

Nuclear and Radiological
Sub-Thema c Area
for DRR

Recurring/ Regular (RR)
Promo ng the planning and execu on of
emergency drills by all ministries and in all
States/UTs
Short Term (T1)
Prepare a na onal plan for nuclear andradiological emergencies

Recurring/ Regular (RR)
• Carry out mass media campaigns• Promote culture of disaster risk preven on,
mi ga on, and be er risk management• Promote a tude and behaviour change in
the awareness campaigns/ IEC• Promote use of insurance/ risk transfer• Promote Community Radio• Strengthening network of civil society
organiza ons for awareness genera on
about DRR and DM

DMD$, SDMA

DMD$, SDMA,
SDRF, F&ES,
CDEF, Police,
DDMA, PRIs,
ULBs

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Short Term (T1)
Relevant subjects should be included in the
DMD$, SDMA,
school/college syllabus throughout the
EDD
country

Short Term (T1)
Develop State and district plans

Recurring/ Regular (RR)
Joint planning and execu on of
emergency drills

Recurring/ Regular (RR)
• Carry out mass media
campaigns• Promote culture of disasterrisk preven on, mi ga on,
and be er risk management• Promote a tude andbehaviour change in theawareness campaigns/ IEC• Promote use of insurance/ risk
transfer• Promote Community Radio• Strengthening network of civilsociety organiza ons forawareness genera on about
DRR and DM• Informa on on safety, careand protec on of disasteraﬀected animals

Short Term (T1)
To follow the same

Responsibility – State

Capacity Development
NATIONAL DISASTER MANAGEMENT AUTHORITY

7 Preparedness

Preparecomprehensive plan6
on medical
management

Nuclear and Radiological
Sub-Thema c Area
for DRR

DAE*, NDRF

DAE*, NDRF, CAPF,
MoH&FW

MoH&FW , DAE*

MOH&FW , DAE, MOD*

Ministries/
Departments

MHA*, MOD, DAE

Centre#Short Term (T1)
Maintain adequate stock of radia on
detec on, monitoring instruments, safety
kits, ﬁrst aid medicines
Medium Term (T2)
Adequate number of ERCs should be set up
across the country for covering of any eventin reasonable me

Recurring/ Regular (RR)
Provide guidance

Short Term (T1)
Prepare own plans in line with the na onal
plan
Short Term (T1)
Prepare plan on nuclear/radiologicalemergency on site, oﬀ-site and public events

DMD , SDMA,
DDMA, Police$

DMD$, SDMA,
DDMA, Police

DMD$, SDMA,
DDMA, PRIs,
ULBs

DMD$, SDMA,
DDMA, PRIs,
ULBs

DMD$, SDMA

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Short Term (T1)
• Prepare nuclear/radiological emergency
DMD$, SDMA,
management plan for metros and other
DDMA, PRIs,
important ci es
ULBs, State• Surveillance at vulnerable loca ons and(Police)early detec on capabili es

Short Term (T1)
To equip the health and police
dept. appropriately

Short Term (T1)
To equip the health and police
dept. appropriately

Short Term (T1)
Prepare own plans in line with
the na onal plan
Short Term (T1)
To follow and ensurecompliance
Medium Term (T2)
•To establish ter ary care
hospitals for treatment ofradia on injuries•Establish primary and secondary
care hospitals of adequate
capacity at select ci es.

Short Term (T1)
Follow the MHA, DAE guidelines
Acquire detec on capabili es.

Responsibility – State

Capacity Development

NATIONAL DISASTER MANAGEMENT PLAN

233

234

MoH&FW, AERB *,MHA, NDMA

MoH&FW*, DAE, DRDO

MAFW, MoH&FW *MHUA

Centre#Short Term (T1)
Se ng up of at least one mobile radiologicallaboratory unit in each district and at least
two such units in each metropolis
Short Term (T1)
Appoint, and maintain areas wise details ofradiological safety oﬃcers, trained medical
personnel, ﬁrst responders, trained
volunteers, etc.

Short Term (T1)
Provision for food, water, medicines andother relief materials should be made at the
shelters for the aﬀected public

Short Term (T1)
To iden ty the places/buildings such ascommunity buildings/schools/hospitals foruse as emergency shelters

Short Term (T1)
To provide support for se ng
up of mobile radiologicallaboratories
Short Term (T1)
To maintain the data district
wise

DMD$, SDMA,
DDMA, PRIs,
ULBs

Short Term (T1)
Provision for food, water,
medicines and other reliefmaterials should be made at the
shelters for the aﬀected public

Short Term (T1)
To help iden fy the loca ons andensure that evacua on plans arein place

Responsibility – State

Capacity Development

DDMA, PRIs,
ULBs

DDMA, PRIs,
ULBs

DMD , SDMA,
DDMA$

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or age ncy with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. (**) Users of nuclear/radiological facili es including industries, hosp itals. ($) DMD—Disaster Management Department:
The state government department ac ng as the nodal department for disaster management, which is not the same in every state/UT.

Nuclear and Radiological
Sub-Thema c Area
for DRR

NATIONAL DISASTER MANAGEMENT AUTHORITY

Hazard Risk
Vulnerability andCapacity Assessment(HRVCA)

1

2

MHFW*, MAFW*, MHA,
MOD, MOES, MOEFCC,
MSJE, NDMA

Recurring/ Regular (RR)
• Promote studies,
documenta on andresearch• Provide Training &Technical support• Studies onvulnerabili es andcapaci es coveringsocial, physical,

Observa on
Networks,
Informa on Systems,
Monitoring,Research,
Forecas ng, Early
Warning and Zoning/
Mapping

HFWD, DMD$, SDMA, DRD,
UDD, DWSD, EFD, AHD, WCD,DSJE, PRI, ULB, SLRTI, DDMAHFWD*, DMD$, SDMA, RD,
DRD, UDD, DWSD, EDD, PD,
EFD, AHD, WCD, PRI/ULB,SLRTI, DDMA

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Recurring/ Regular (RR)
• Support for training• Extend technicalsupportMedium Term (T2)MHFW*(NCDC), MAFW, • Establishment of Early
MHA, MOD, MOES,
Warning System
MOEFCC, MOR, MLBE, • Strengthening IDSP and
MEITY, NDMA
early warning systems
at regional levels• Epidemiological disease
mapping• Health facili es
mapping

Biological & Public Health Emergencies (BPHE)
Sub-Thema c Area for
DRR
Centre#7.15.1 Understanding Risk

7.15 Biological and Public Health Emergencies (BPHE)

Responsibility – State
Recurring/ Regular (RR)
Maintaining preven ve measures
as per norms
Short Term (T1)
Strengthening integrated healthsurveillance systems
Medium Term (T2)
• Establishing and maintaincommunity-based network forsharing alerts• Strengthening IDSPLong Term (T3)States should, modify or adapt
IMD’s warning system according tothresholds applicable in each state
Recurring/ Regular (RR)
• Upda ng HRVCA• Iden fying the vulnerable
popula on/ communi es/
se lements• Iden ﬁca on of groups requiring
special a en on• Conduct audit of equipment andhuman resource requirements

Understanding Risk

NATIONAL DISASTER MANAGEMENT PLAN

235

236

MHA*, MOSPI, allministries/ depts.

Disaster Data
Collec on andManagement

3

4

Recurring/ Regular (RR)
Systema c data
management of data on
disaster damage and loss
assessments
Short Term (T1)
Disaster Damage andLosses 2005-2015
baseline

DMD$, SDMA, all depts.

••

HFWD*, DMD$, SDMA, DRD,
UDD, DWSD, EDD, PD, EFD,
• Support for organising
AHD, WCD, PRI, ULB, SLRTI,
training
DDMA• Extend technical support

Recurring/ Regular (RR)

economic, ecological,
gender, social inclusionand equity aspects
Short-Term (T1)
Develop guidelines

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Short Term (T1)
Disaster Damage and Losses 20052015 baseline

Recurring/ Regular (RR)
Systema c data management ofdata on disaster damage and loss
assessments

Short Term (T1)
• Create awareness preven ve
measures• Extensive IEC campaigns tocreate awareness through print,
electronic and social media
Medium Term (T2)
Speciﬁc messages for highly
vulnerable groups such as elderly,
young children, outdoor workers
and slum residents

Responsibility – State
Short Term (T1)Cons tute/ strengthen themechanisms for consulta on withexperts and stakeholders

Understanding Risk

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

MHFW, MHA, MOD,
MOES, MAFW,
MOEFCC, NDMA

Dissemina on of
warnings, data &informa on

Biological & Public Health Emergencies (BPHE)
Sub-Thema c Area for
DRR
Centre#NATIONAL DISASTER MANAGEMENT AUTHORITYHFWD*, DMD$,
SDMA, RD, DRD,
UDD, DWSD,
EDD, PD, EFD,
AHD, WCD, PRI,ULB, DDMAMHFW*,MHA, MOD,
MAFW,
MOEFCC,MLBE

OveralldisastergovernancePrepara on
andResponse

1

2

Short Term (T1)
• Strengthening of integrated surveillancesystems based on epidemiologicalsurveys; detec on and inves ga on ofany disease outbreak.

HFWD, DMD$,
SDMA, RD, DRD,
UDD, DWSD,
EDD, PD, EFD,
AHD, WCD, PRI,ULB, DDMA

State#

Recurring/ Regular (RR)
• Preparing guidelines
MHFW, MHA,
• Promote the mainstreaming of DRR in
MOD, MOES,
healthcare
MAFW,• Technical inputs for implementa on
MOEFCC,
based on experience from diﬀerent
MOR, MLBE,
loca ons
NDMA• Collabora on with NGOs/CSOs

Biological & Public Health Emergencies (BPHE)
SubCentral/ State Agencies and their Responsibili es
Thema cCentre#Responsibility – Centre
Area for DRR

7.15.2 Inter-Agency Coordina on

Short Term (T1)
• Implementa on as per speciﬁc condi ons in thestate• Team mobiliza on and coordina on - oﬃcials andagencies• Involving local administra on
Medium Term (T2)
• Coordinate with the state MOES (IMD) oﬃce
regarding forecasts, early warning and alert
system based on colour codes corresponding to
diﬀerent thresholds• Develop a clearly deﬁned interagency emergency
response plan with roles and informa on ﬂows
clearly marked out
Long Term (T3)
• Partnering local ins tu ons with na onal
ins tu ons / experts• Adap ng HAPs developed in other countries/ci es, monitoring and evalua ng
implementa on and impact on mortality andmorbidity
Short Term (T1)
• Rapid health assessment and provision oflaboratory support

Responsibility – State

Inter-Agency Coordina on

NATIONAL DISASTER MANAGEMENT PLAN

237

238

HFWD*, DMD$,
SDMA, RD, DRD,
UDD, DWSD,
EDD, PD, EFD,
AHD, WCD,PRI/ULB, SLRTI,DDMAState#

Short Term (T1)
• Follow the alerts/warning• “Do's-and-Don’ts” should be available in local
languages and widely disseminated• Dissemina on of warnings to all, down to the last
mile – remote, rural or urban• Regular updates to people in areas at risk
Medium Term (T2)Collec ng Data/ Informa on necessary for review/
update of the plan

• Ins tu on of public health measures to deal withsecondary emergencies as an outcome of
biological emergencies

Responsibility – State

Inter-Agency Coordina on

Biological & Public Health Emergencies (BPHE)
Structural Measures
Central/ State Agencies and their Responsibili es
Sub-Thema c
Area for DRR
Centre#Responsibility – Centre
State#
Responsibility – State**$
Short Term (T1)
Short Term (T1)
MHFW ,
HFWD , DMD , SDMA,
Strengthening
1
MHA, MOD, • Strengthening Pre-hospital RD, DRD, UDD, DWSD,• Establishing adequate decontamina on systems,
Response
MOES,
EDD, PD, EFD, AHD,
Care and Emergency
cri cal care Intensive Care Units (ICUs) and7.15.3 Inves ng in DRR – Structural Measures

Notes: (#) Every ministry, department or agency of the government - central and state - not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

3Warnings,
Informa on,
Data

MHFW*,MHA, MOD,
MOES,
MAFW,
MOEFCC,
MOR, MLBE,
NDMA

Short Term (T1)
• Public awareness and community
outreach• Documenta on• Collec ng Data from States
Medium Term (T2)• Collec ng Data/ Informa on necessary
for review/ update of the plan
• Maintaining na onal-level database

Biological & Public Health Emergencies (BPHE)
SubCentral/ State Agencies and their Responsibili es
Thema cCentre#Responsibility – Centre
Area for DRR• Development of HEOC and its integra onwith centralised EOC• Developing specialised response
capabili es for biological emergencies• Develop preparedness for biosafetyissues rela ng animals and agricultural
crops, especially food crops

NATIONAL DISASTER MANAGEMENT AUTHORITY

Biological & Public Health Emergencies (BPHE)
Structural Measures
Central/ State Agencies and their Responsibili es
Sub-Thema c
Area for DRR
Centre#Responsibility – Centre
State#
Responsibility – State
MAFW,
Medical Care (EMC)
WCD, PRI/ULB, SLRTI,
isola on wards with pressure control and lamellar
MOEFCC,
NetworkDDMA
ﬂow systems
NDMA• Iden fying infrastructure• Adequate Personal Protec ve Equipment (PPE) forneeds for formula ng
all the health workers associated with themi ga on plans
responding to biological emergencies
Medium Term (T2)
• Laying down minimum
standards for water, food,• Strengthening/mainstreaming the network
shelter, medical care,
medical assistance facili essanita on, and hygiene• Equipping Medical First Responders (MFRs)/Quick• Strengthening of EMT
Reac on Medical Teams (QRMTs) with all material
response mechanism
logis cs and backup support
na onally andLong Term (T3)interna onally and IHR• Upgrada on of earmarked hospitals to cope with
Framework
Chemical, Biological, Radiological and Nuclear(CBRN) emergencies• Communica on and networking system withappropriate intra-hospital and inter-linkages withstate ambulance/transport services, state police
departments and other emergency services• Mobile tele-health services and Mobile Hospitals
Medium Term (T2)
Medium Term (T2)
Specialised health care and laboratory facili es to• Guidelines and technicaladdress biological emergencies/ incidents
supportHFWD*, DMD$, SDMA,
Long Term (T3)
Upgrading
MHFW*,• Specialised health care
2
DRD, UDD, WCD, PRI,
Medical Facili es MHA, MOD• Establishing and strengthening quaran ne
and laboratory facili es
ULB, DDMA
facili es
Long Term (T3)•Crea ng at least one public health laboratory in• Crea ng a chain of publiceach district
health laboratories with at

NATIONAL DISASTER MANAGEMENT PLAN

239

240

1 Techno-Legal regimes

MHFW*, MHA,
MOD, MAFW,
NDMA

Biological & Public Health Emergencies (BPHE)
Sub-Thema c Area for
DRR
Centre#Non-Structural Measures
Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
Recurring/ Regular (RR)
Guidance and Support
Recurring/ Regular (RR)
Medium Term (T2)
Strengthen ins tu onal
• Dovetail norms and regula ons
HD, DMD$, SDMA, RD, arrangements
relevant for BPHE with the DM Act
DRD, UDD, DWSD,
Medium Term (T2)
2005
EDD, PD, EFD, AHD,
Enact/ amend any Act, Rule or
WCD, PRI, ULB, DDMA Regula on, if necessary, for be er• Enact/ amend any Act, Rule or
implementa on of BPHE
Regula on, if necessary, for be er
programmes
implementa on of BPHE
programmes

7.15.4 Inves ng in DRR – Non-Structural Measures

Notes: (#) Every ministry, department or agency of the government - central and state - not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

Biological & Public Health Emergencies (BPHE)
Structural Measures
Central/ State Agencies and their Responsibili es
Sub-Thema c
Area for DRR
Centre#Responsibility – Centre
State#
Responsibility – State
least one such laboratory
in each district• Stockpiling of essen al
medical supplies such as
vaccines and an bio cs,
etc.
• Guidance for establishingand strengthening
quaran ne facili es

NATIONAL DISASTER MANAGEMENT AUTHORITYMFIN*, NDMA,MHA, MAFW

3 Risk Transfer

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
Recurring/ Regular (RR)
• Strict compliance with biosafety andbiosecurity provisions• Environmental monitoring to prevent
Recurring/ Regular (RR)
outbreaks•
Strictcompliance with biosafety• Integrated vector management for
HD, DMD$, SDMA,
and biosecurity provisions
elimina on of breeding places
AHD, PRI, ULB, SLRTI,• Environmental monitoring to• Biological and chemical interven ons
DDMAprevent outbreaks
for vector control• Monitoring of water supply andsewage systems to prevent thedispersal of biological agents that cancause epidemics
Recurring/ Regular (RR)
Recurring/ Regular (RR)
Implementa on of Risk Transfer
Implementa on of Risk Transfer
Arrangements including mul Arrangements including mul -hazard
DFIN*, DMD$, SDMA,
hazard insurance for life andinsurance for life and property
DAG
property
Short Term (T1)
Short Term (T1)
Policy Framework
Policy Framework

Non-Structural Measures

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

MHFW*, MHA,
MOD, MOES,
MAFW,
MOEFCC

Biosafety and Biosecurity
Measures and2
Environmental
Management

Biological & Public Health Emergencies (BPHE)
Sub-Thema c Area for
DRR
Centre#NATIONAL DISASTER MANAGEMENT PLAN

241

242

Biological & Public Health Emergencies (BPHE)
Central/ State Agencies and their Responsibili es
Sub-Thema c
Area for DRR
Centre#Responsibility – Centre
State#
Recurring/ Regular (RR)
Training support for SDRF, CDEF,
community, and volunteers
Medium Term (T2)
Strengthening of Na onal Disaster
Response Force (NDRF), medical ﬁrst
responders, medical professionals,
paramedics and other emergency
responders
HFWD*, DMD$,MHFW*, MHA,Long Term (T3)
SDMA, SDRF, RD,
Human Resource
NDRF, MOD, AYUSH,• Development of human resources for
DRD, UDD, DWSD,
1 Development &MOES, MAFW,
monitoring and management of the
EDD, PD, EFD, AHD,
Training
MOEFCC, NIDM,
delayed eﬀects of BPHE in the areas of
WCD, PRI, ULB, SIRD,
MYAS
mental health and psychosocial care
SLRTI, DDMA
• Training programmes in the areas of
emergency medicine and biologicalemergency management for hospitaladministrators, specialists, medicaloﬃcers, nurses and other health care
workers• Training for youth through NCC, NYKS,
Scouts and Guides and NSS

7.15.5 Capacity Development

Recurring/ Regular (RR)
Training support for CDEF,
community, and volunteers
Medium Term (T2)
• Training for surveillance• Training for deployment of Rapid
Medical Response Teams• Training for All Health and allied
healthcare professions, AYUSH
doctors and prac oners,
community health workers, ASHA,
MPWS, ANM and aanganwadi
workers.
Long Term (T3)
Organising community awarenessprogrammes for ﬁrst aid andgeneral triage

Responsibility – State

Capacity Development

NATIONAL DISASTER MANAGEMENT AUTHORITY

Recurring/ Regular (RR)
• Support awareness campaigns/ IEC• Support network of civil society
organiza ons for awareness genera on
about emergencies caused by biologicalagentsMHFW*, MOD,
MOES, MAFW,
MOEFCC, MHRD,NIDMMHFW*, MOES,
MAFW, MOEFCC,
MLBE, NDMA,
MOIB, NIDM

Knowledge
management &2
Curriculum
Development

Awareness
Genera on

3

Recurring/ Regular (RR)
• Incorpora ng basic knowledge of BPHE
management through the educa onal
curricula• Support for proper educa on andtraining health emergency personnel• Promote con nuing medical educa on
programmes and workshops at regularintervals• Deﬁning the role of public, private, andcorporate sector for their ac ve
par cipa on and their sensi sa on

Capacity Development

Responsibility – State
Recurring/ Regular (RR)
• Incorpora ng basic knowledge of
BPHE management through theeduca onal curricula• Proper educa on and training of
HFWD*, DMD$, DRD,
personnel
UDD, EDD, EFD,
• Conduct con nuing medical
AHD, SLRTI, PRI, ULB,
educa on programmes andDDMAworkshops at regular intervals• Deﬁning the role of public,
private, and corporate sector for
their ac ve par cipa on and their
sensi sa on
Recurring/ Regular (RR)
• Promo ng awareness, alertness
and preparedness• Training programs for public,
PRIs/ ULBs
HFWD*, DMD$,• Community awareness
SDMA, IPRD, DRD,
programme for ﬁrst aid
UDD, DWSD, EDD,
• Dos and Don’ts to mi gate thePD, EFD, AHD, WCD,eﬀects of medical emergencies
PRI/ULB, SLRTI,
caused by biological agents
SIHFW, DDMA
• Awareness about the importanceof personal hygiene• With due considera on to thesocial, ethnic and religious issues
involved, utmost care will be

Biological & Public Health Emergencies (BPHE)
Central/ State Agencies and their Responsibili es
Sub-Thema c
Area for DRR
Centre#Responsibility – Centre
State#NATIONAL DISASTER MANAGEMENT PLAN

243

244

Mock Drills/
Exercises/ CBDM

Hospital5Preparedness

4

Short Term (T1)
HFWD*, DMD$,
Iden fying, stockpiling, supply chain and
SDMA, DRD, UDD,
inventory
managementofdrugs,
DWSD, WCD, DDMA
equipment and consumables including

MHA*, MHFW,
MOD, MAFW,
MOEFCC, MOR,
NDMA, NRDF

MHFW*, MHA,
MOD, MLBEHFWD*, DMD$,
SDMA, EFD, RD,
DDMA, SDRF, F&ES,
CDEF, Police, PRI,ULB

Recurring/ Regular (RR)
• Promo ng the planning and execu onof emergency drills• Technical support for iden fying andresolve communica on gaps between
par cipa ng departments, partners andthe public

Biological & Public Health Emergencies (BPHE)
Central/ State Agencies and their Responsibili es
Sub-Thema c#
Area for DRR
CentreResponsibility – Centre
State#

Recurring/ Regular (RR)
Prepara on of DMP by all the
hospitals including those in theprivate sector

Recurring/ Regular (RR)
• Deﬁning the role of thecommunity as a part of thedisaster management• Tes ng of various elements of thehospital emergency preparedness
through table top exercises, andmock drills• Iden fy and resolve
communica on gaps between
par cipa ng departments,
partners and the public• Joint execu on of emergency
drills with local bodies

exercised in the disposal of deadbodies.

Responsibility – State

Capacity Development
NATIONAL DISASTER MANAGEMENT AUTHORITY

Biological & Public Health Emergencies (BPHE)
Central/ State Agencies and their Responsibili es
Sub-Thema c
Area for DRR
Centre#Responsibility – Centre
State#
vaccines and other agents for protec on,
detec on, and medical management
Medium Term (T3)
• Ins tu onalisa on of advanced
Emergency Medical Response System(EMRS)• Upgrading exis ng biosafety
laboratories and establishing new ones
Recurring/ Regular (RR)
Post-disaster phase medical
documenta on procedures andepidemiological surveys
Short Term (T1)
Regular upda ng by adop ng ac vi es in
Research and Development (R&D) mode,
HFWD*, DMD$,MHFW*, MOD,ini ally by pilot studies
SDMA, DRD, UDD,
6 Applied research
MOES, MAFW,
Medium Term (T2)
DWSD, EDD, PD,
MOEFCC, MOST
Development of post-disaster medical
EFD, AHD, WCD,
documenta on procedures and
PRI/ULB, SLRTI
epidemiological surveys
Long Term (T3)
Strengthening of scien ﬁc and technicalins tu ons for knowledge management
and applied research and training inmanagement of CBRN emergencies
Recurring/ Regular (RR)
Empowering
WCD*, HFWD, DMD$,*
women,
MHFW , MHA,
• Guidance
7
SDMA, DRD, UDD,
marginalised
NIDM, NDMA
• Promote gender sensi ve and equitable
PRI, ULB, DDMA
communi es,
approaches

Recurring/ Regular (RR)
Incorpora ng gender sensi ve andequitable approaches in capacity
development for coping with BPHELong Term (T3)
Strengthening of scien ﬁc andtechnical ins tu ons for knowledge
management and applied researchand training in management of
CBRN emergencies

Responsibility – State
Medium Term (T2)
Developing a mechanism toaugment surge capaci es to
respond to any mass casualty event
following a biological emergency
Long Term (T3)
Specialised health care andlaboratory facili es

Capacity Development

NATIONAL DISASTER MANAGEMENT PLAN

245

246

Responsibility – State

Capacity Development

Research, Forecas ng,
Early Warning, Data
1
Management, Zoning,
Mapping
MHFW*, MOES,
MOEFCC, MOES,
NDMA, NLRTI

Biological & Public Health Emergencies (BPHE)
Sub-Thema c Area for
DRR
Centre#7.15.6 Climate Change Risk Management
Climate Change Risk Management
Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
Recurring/ Regular (RR)
Share informa on and updates
Short Term (T1)
Strengthening integrated healthsurveillance systems based on
GACC scenarios
Medium Term (T2)
Recurring/ Regular (RR)$
• Detailed assessment and
HFWD*, DMD , SDMA,• Support and cooperate with
monitoring of biological threats DRD, UDD, AGD, DWSD,
central agencies
under GACC impact scenarios
EDD, PD, EFD, AHD, SLRTI • Sponsor and support state• Develop Database
speciﬁc and local eﬀorts
management system rela ng toBiological Disasters & climatechangeLong Term (T3)
Improve forecas ng andassessment capabili es

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

Biological & Public Health Emergencies (BPHE)
Central/ State Agencies and their Responsibili es
Sub-Thema c
Area for DRR
Centre#Responsibility – Centre
State#
SC/ST, and persons
with disabili es

NATIONAL DISASTER MANAGEMENT AUTHORITYMHFW*, MOES,MAFW*, MOEFCC,
NDMA, MSJE,NLRTIMHFW*, MOES,
MOJS, MOEFCC,
MAFW

Hazard Risk Vulnerability
2 and Capacity Assessment(HRVCA)

Climate Change
3 Adapta on(CCA)

Biological & Public Health Emergencies (BPHE)
Sub-Thema c Area for
DRR
Centre#Medium & Long Term (T2, T3)• Undertake detailed studies onvulnerability and risk under
GACC scenarios• Assess GACC risks of vulnerable
and marginalised sec ons• Provide technical support andguidance for comprehensive
HRVCA considering GACC
impacts
Short-Term (T1)
• Understanding adapta on
needs• Study coping mechanisms• Develop adapta onmechanisms
Medium & Long Term (T2, T3)• Environmental monitoring to
reduce risks from GACC
• Support the implementa on of
CCA programs• Promote appropriate
combina ons of Green andBlue infrastructure approach
HFWD*, DMD$, SDMA,
DDMA, PRIs, ULBs

HFWD*, DMD$, SDMA,
AGD, RD, WRD, DSJE,
SLRTICentral/ State Agencies and their Responsibili es
Responsibility – Centre
State#
consistent with the anticipatedchanges

Recurring/ Regular (RR)
• Sensi sa on and awarenesscrea on• Support na onal CCA eﬀorts• Coordina on with central
agencies• Sponsor and promote statespeciﬁc eﬀorts and local eﬀorts
for GACC mi ga on andadapta on
Short –Term (T1)
Develop local adapta on
strategies and pilot projects

Recurring/ Regular (RR)
Undertake HRVCA as part ofpreparing and periodic revision of
DM plans
Medium Term (T2)
Assess GACC risks of vulnerable
and marginalised sec ons

Responsibility – State

Climate Change Risk Management

NATIONAL DISASTER MANAGEMENT PLAN

247

248

• Promote adap ve measures insocial protec on programmes
for the vulnerable groups

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Medium -Term (T2)Sponsor and promote statespeciﬁc eﬀorts and local eﬀorts
Long – Term (T3)
• Implementa on of GACC
adapta on programs• Promote appropriate
combina ons of Green and Blueinfrastructure approach• Integrate adap ve measures insocial protec on programmes
for the vulnerable groups

Responsibility – State

Climate Change Risk Management

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

Biological & Public Health Emergencies (BPHE)
Sub-Thema c Area for
DRR
Centre#NATIONAL DISASTER MANAGEMENT AUTHORITY

Note: Unlike other sub-sec ons, the focus of the responsibility framework for ﬁre risk mi ga on is on Fire and Emergency Services and, therefore, it is in adiﬀerent format.
Fire Hazard
Central/ State Agencies and their Responsibili es
Thema c Area for DRR
Centre#Responsibility – Centre
State#
Responsibility – State
Recurring/ Regular (RR)
Systema c data management ofdata on disaster damage and loss
assessments
Short Term (T1)
• Applying the classiﬁca on system
for hazardous industries in ruraland urban areas based on norms
Recurring/ Regular (RR)
laid down by the SFAC for ﬁre• Technical support
services• Systema c data management
MHA*, MHUA,
DMD$, SDMA, F&ES,• Vulnerability analysis of denselyof data on disaster damage
7.16.1 Understanding
MOEFCC, Other
SDRF, INDD, SPCB, DISH,
popula on clusters prone to highand loss assessments
Relevant Ministries/
ULBs, PRIs, DDMA, SLRTI,
Risk
risk of ﬁre
Short Term (T1)
Departments
Other Depts.
• Disaster Damage and Losses
Disaster Damage and Losses
2005-2015 baseline
2005-2015 baseline
Medium Term (T2)
• Mapping of hazardous sites thatpose ﬁre and explosion risks• Assess and ﬁx the requirement ofequipment and manpower• Iden fying areas prone to forest
ﬁres and take preven ve
measures7.16 Fire Hazard

NATIONAL DISASTER MANAGEMENT PLAN

249

250

MHA, MHUA, NDRF

MHA, MHUA, NLRTI

7.16.3 Inves ng in DRR– Structural
Measures

Centre#7.16.2 Inter-Agency
Coordina on

Thema c Area for DRR

Recurring/ Regular (RR)
Technical support

Recurring/ Regular (RR)
Provide guidance, technicalinputs, and support

Responsibility – State
Recurring/ Regular (RR)•
Preparaon and implementa on
DMD$, SDMA, F&ES,
of ﬁre safety and preven on
SDRF, INDD , SPCB, DISH,
plans in all built environments
ULBs, PRIs, DDMA, Other• Ensure the func oning ofDepts.
agencies to ensure propercompliance of ﬁre safety norms
Medium Term (T2)
• Iden fy the gaps in exis ng
capabili es – equipment andinfrastructure• Address gaps in infrastructureand equipment needs, upgrade
equipment including personal
protec ve equipment• Ac on plan for moderniza on
and mee ng future needs
DMD$, SDMA, F&ES,
SDRF, INDD , SPCB, DISH, • Strengthening and standardizing
ULBs, PRIs, DDMA, SLRTI,
response mechanisms
Other Depts.
Long Term (T3)
• Procurement of equipment for
ﬁreﬁgh ng, urban search andrescue as per the requirement• Establish ﬁre sta ons/ posts up to
the sub-divisional level to theblock level• Enhance the mul hazard
response capabili es considering
local hazards and vulnerabili es

Fire Hazard
Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#NATIONAL DISASTER MANAGEMENT AUTHORITY

7.16.4 Inves ng in DRR– Non-Structural
Measures

Thema c Area for DRR

MHA, MHUA, Other
relevant Ministries/
Depts.

Centre#Recurring/ Regular (RR)
• Enforcement of Fire Safety
Rules and Regula on• Provide Support• Frame model rules, laws,
guidelines• Implementa on of Risk
Transfer Arrangements
including mul -hazard
insurance for life andproperty
Short Term (T1)
Risk Transfer Policy Framework

Responsibility – State
Recurring/ Regular (RR)
• Strict implementa on andstrengthening of ﬁre safety rules• Strict procedures for ﬁre safety
cer ﬁca on should be followed
before issuing building use
permissions• Ensure frequent inspec on forﬁre safety system and equipmentin public u li es• Implementa on of Risk Transfer
Arrangements including mul hazard insurance for life andproperty
DMD$, SDMA, F&ES,
Short Term (T1)
SDRF, INDD, SPCB, DISH,
ULBs, PRIs, DDMA, SLRTI, • Enactment of Fire Act and other
Other Depts.
legal measures as perrecommenda ons of SFAC andother oﬃcial bodies• Promo on of building codes as
per NBC 2016, especially parts
rela ng to ﬁre and life safety andother relevant sec ons• Ins tu onal reform and majorchanges in organiza onal set up• Legal regime for mandatory ﬁreclearance from F&ES for diﬀerent
types of buildings, colonies,
industries and other installa ons• Risk Transfer Policy Framework

Fire Hazard
Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#NATIONAL DISASTER MANAGEMENT PLAN

251

252

Recurring/ Regular (RR)
• Provide guidance and support
MHA, NDMA, NIDM,
to SDRF, CDEF, community,
NDRF, Other relevant
and volunteers
Ministries/• TOT programs on various
Departments
aspects such as ﬁreﬁgh ng,
managing collapsed structure,and search and rescue

Centre#

DMD$, SDMA, SDRF,
SIDM, ATI, F&ES, SDRF,
CDEF, ULBs, PRIs, DDMA,
SIRD, SLRTIResponsibility – State
Recurring/ Regular (RR)
• Advanced training on disastermanagement CDEF, community,and volunteers• Promo ng culture of awareness,
alertness and preparedness• Awareness genera on programsfor public, u li es, ULBs, PRIs,
and industries• IEC materials and ensure wider
disseminate to general publicthrough all medium• Informa on on safety, care andprotec on of disaster-aﬀectedanimals• TOT programs on various aspects
such as ﬁreﬁgh ng, managing
collapsed structure, and searchand rescue
Medium Term (T2)
• Address the capability gaps –human and ins tu onal
• Strengthening and standardizing
response mechanisms

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

7.16.5 Capacity
Development

Thema c Area for DRR

Fire Hazard
Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#NATIONAL DISASTER MANAGEMENT AUTHORITY

Observa on
Networks,
Informa on Systems,
Monitoring,1
Research,
Forecas ng, Early
Warning and Zoning/
Mapping

Forest Fires
Sub-Thema c Area
for DRR

7.17.1 Understanding Risk
Central/ State Agencies and their Responsibili es
Centre#Responsibility – Centre
Recurring/ Regular (RR)
Support for organising training
Extend technical support
Short Term (T1)
• Employ a system of ﬁre risk
classiﬁca on based on best available
methods such as those using satellites• Technical support in mapping forest
ﬁre vulnerability areas using satellites• Seasonal forest-ﬁre monitoring andassessment
MOEFCC*,
MOES, DOS,
• Strengthen coordina on between
MHA, MOD,
MOD and MOEFCC
MEITY
Medium Term (T2)
• Strengthen the early detec on andwarning• Opera onalise a system of near realme monitoring of forest fires using
best technologies available such as
low ﬂying aircra , unmanned aerial
vehicles (UAV) and drones
Long Term (T3)
• Near Real-Time monitoring of forest
ﬁres

7.17 Forest Fire Hazard

EFD*, DMD$, SDMA,
RD, SLRTI, PRIs/
ULBs, DDMA

State#

Responsibility – State
Recurring/ Regular (RR)
Maintaining preven ve measures as
per norms
Short Term (T1)
• Mapping of human se lements inﬁre-prone forest areas• Monitoring ﬁre-prone forest areas• Iden fy areas prone to forest ﬁresand monitor them closely in themonths when ﬁres usually occur
Medium Term (T2)
• Establish and maintain communitybased networks for early detec onand repor ng to the nearest
authori es• Promo ng community-based forest
monitoring system
Long Term (T3)
• Establishing and maintainarrangements to communicate
eﬀec vely with people living within
and near forests• Establish and maintain a system ofmutual aid among nearby ﬁreUnderstanding Risk

NATIONAL DISASTER MANAGEMENT PLAN

253

254

Recurring/ Regular (RR)
Support for organising training
Extend technical support

MOEFCC*,
MOES, MSJE,
NDMA, NIDM

MOEFCC*,
MOES, NDMA,NIDMHazard Risk
Vulnerability and2Capacity Assessment(HRVCA)

Dissemina on of
3 warnings, data, andinforma on

Central/ State Agencies and their Responsibili es
Centre#Responsibility – Centre• Studies/ assessments of areas prone
to forest ﬁres, ecological aspects,
wildlife concerns• Conduct a detailed ﬁre history to
determine the frequency, distribu on,
and severity of wildﬁreRecurring/ Regular (RR)
• Promote studies, documenta on andresearch• Provide Training & Technical support• Studies on vulnerabili es andcapaci es covering social, physical,
economic, ecological, gender, social
inclusion and equity aspects
Short-Term (T1)
Develop guidelines

Forest Fires
Sub-Thema c Area
for DRR

EFD*, DMD$, SDMA,SLRTI, PRIs/ ULBs,
DDMA

EFD*, DMD$, SDMA,
DSJE, PRIs, ULBs,
DDMAState#

Recurring/ Regular (RR)
• Upda ng HRVCA• Iden ﬁca on and lis ng of
popula on clusters prone to forest
ﬁre risk• Iden ﬁca on of popula on clusters
within forests requiring urgenta en on• Conduct audit of equipment andmanpower requirements
Short Term (T1)Cons tute/ strengthen themechanisms for consulta on withexperts and stakeholders
Short Term (T1)Create awareness for forest ﬁrepreven on as most ﬁres are caused byhumans, deliberately or inadvertently
Medium Term (T2)
Establishing reliable system to pass on
the correct informa on on ﬁresitua on to communi es andresponders

Responsibility – State
services and forest oﬃces forsharing/ pooling of resources

Understanding Risk
NATIONAL DISASTER MANAGEMENT AUTHORITY

Central/ State Agencies and their Responsibili es
Centre#Responsibility – Centre
Recurring/ Regular (RR)
Systema c data management of data
MHA*, MOSPI,
on disaster damage and loss
all ministries/
assessments
Short Term (T1)
depts.
Disaster Damage and Losses 2005-2015
baseline
DMD$, SDMA, alldepts.

State#

Responsibility – State
Recurring/ Regular (RR)
Systema c data management of dataon disaster damage and loss
assessments
Short Term (T1)
Disaster Damage and Losses 2005-2015
baseline

Understanding Risk

2 Response

Overall disastergovernance
1 (Forests are in
the concurrent
list)

Forest Fires
Sub-Thema c
Area for DRR

MOEFCC , MHA,
MOD, NDMA*MOEFCC*, MHA,
NDMA, MOES,
MOD, DOS, MORD,MHUAEFD*, DMD$,
SDMA, RD,
PRIs, ULBs,
DDMA

EFD*, DMD$,
SDMA, RD,
PRIs, ULBs,
DDMARecurring/ Regular (RR)
• Organising and coordina ng central
assistance• Strengthening Incident Command System
involving mul ple agencies

State#

Recurring/ Regular (RR)
• Providing coordina on, technical inputs, andsupport• Coordina on among mul ple agencies –forest, IMD, FSI,

Central/ State Agencies and their Responsibili es
Centre#Responsibility – Centre

7.17.2 Inter-Agency Coordina on

Recurring/ Regular (RR)
• Organising and coordina ng theimmediate response• Coordinate with central agencies

Responsibility – State
Recurring/ Regular (RR)
• Prepara on and implementa on of DM
plans and ensure the func oning ofagencies with DM tasks• All aspects of disaster risk management
and mainstreaming DRR• Ensuring coherence and mutual
reinforcement of DRR, CCA anddevelopment

Inter-Agency Coordina on

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

Disaster Data
4 Collec on andManagement

Forest Fires
Sub-Thema c Area
for DRR

NATIONAL DISASTER MANAGEMENT PLAN

255

256

Central/ State Agencies and their Responsibili es
Centre#Responsibility – Centre
Recurring/ Regular (RR)Eﬀec
vecoordina
on and seamless
MOEFCC*, MOES,
communica on among central and stateDOS, NDMA, NIDM,
agencies to ensure quick, clear, eﬀec ve
MORD, MHUA
dissemina on of warnings, informa on anddata
Responsibility – State

Recurring/ Regular (RR)
Coordina ng the dissemina on of
warnings to all, down to the last mile –remote, rural or urban; Regular updates
to people in areas at risk

State#
EFD*, DMD$,
SDMA, RD,
PRIs/ ULBs,
DDMAInter-Agency Coordina on

EFD*, DMD$,
SDMA, PRIs,
ULBs, DDMA

EFD*, DMD$,
SDMA, PRIs,

Recurring/ Regular (RR)
Support by deploying aircra s,
helicopters, UAV, drones andequipment

Recurring/ Regular (RR)
Guidelines and technical support forincorpora on of ﬁre and mul -

MORD,
MHUA,

2 Social Housing Schemes

State#

MOEFCC*,
MORD,
MHUA

Central/ State Agencies and their Responsibili es
Centre#Responsibility – Centre

Strengthening forest-ﬁre ﬁgh ng
1systems

Sub-Thema c Area for DRR

Forest Fires

7.17.3 Inves ng in DRR – Structural Measures

Responsibility – State
Recurring/ Regular (RR)
• Strengthening various forest ﬁrepreven on measures• Communica on network of wirelesssystem
• Eﬀec ve transporta on• Specialised equipment to ﬁght forest
ﬁres• Improved ﬁre-resistant clothing• Strengthening the network of watch
towers• Expanding ﬁre detec ng systems
Recurring/ Regular (RR)
Ensure incorpora on of ﬁre and mul hazard resistant features in the planning

Structural Measures

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

Warnings,
3 Informa on,
Data

Forest Fires
Sub-Thema c
Area for DRR

NATIONAL DISASTER MANAGEMENT AUTHORITY

MOEFCC*,
MORD,
MHUA,
NDMA
Recurring/ Regular (RR)
Guidance and implementa on

Central/ State Agencies and their Responsibili es
Centre#Responsibility – Centre
MOEFCC,hazard resistant features in
NDMA
planning and execu on of social
housing schemes
EFD*, DMD$,
SDMA, PRIs,
ULBs, DDMA

State#
ULBs, DRDA,
DDMA

Recurring/ Regular (RR)
Collabora on with technical agencies andimplementa on

Responsibility – Stateand execu on of social housing schemesin the se lements within and adjacent toforests.

Structural Measures

1

Techno-Legalregimes

Sub-Thema c
Area for DRR

Forest Fires

MOEFCC ,MORD, MHUA*

Centre#Short Term (T1)
• Develop forest ﬁre preven on andmanagement manual• Priori sing forest ﬁre management inforestry plans

Recurring/ Regular (RR)
• Guidance and Support• Ins tu onal Arrangements• Promote use of insurance/ risk transfer

Responsibility – Centre

Central/ State Agencies and their Responsibili es

7.17.4 Inves ng in DRR – Non-Structural Measures

EFD*, DMD$,
SDMA, UDD,
DRD, DDMA,
PRIs, ULBs

State#

Recurring/ Regular (RR)
• Strengthen the laws and regula ons forforest ﬁre preven on and control• Improve the ins tu onal arrangements forforest ﬁre preven on and control• Promote use of insurance/ risk transfer

Responsibility – State

Non-Structural Measures

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this sym bol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

Hazard resistant construc on,strengthening, and retroﬁ ng of
3 all lifeline structures and cri cal
infrastructure near forest area andin forest villages

Sub-Thema c Area for DRR

Forest Fires

NATIONAL DISASTER MANAGEMENT PLAN

257

258

MFIN*, NDMA,MHA, MAFW

Risk Transfer

Recurring/ Regular (RR)
Implementa on of Risk Transfer
Arrangements including mul -hazard
insurance for life and property
Short Term (T1)
Policy Framework• Review forest management systems andprac ces• Review Laws & Regula ons

Responsibility – Centre

DFIN*, DMD$,
SDMA, DAGState#

Recurring/ Regular (RR)
Implementa on of Risk Transfer
Arrangements including mul -hazard
insurance for life and property
Short Term (T1)
Policy Framework

Responsibility – State

Non-Structural Measures

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

Centre#Central/ State Agencies and their Responsibili es

Sub-Thema c
Area for DRR

Forest Fires

NATIONAL DISASTER MANAGEMENT AUTHORITYEFD*, EDD,
SDMI, SLRTIEFD*, DMD$,
SDMA, IPRD,
RD, DDMA

Short Term (T1)
Update curriculum rela ng to forestry
management courses and training
programmes to include topics relevant toforest ﬁre preven on and control

Recurring/ Regular (RR)
• Support awareness campaigns/ IEC• Support network of civil society
organiza ons for awareness genera on
about forest ﬁres preven on andcontrol

MOEFCC*, MHRD,
NIDM, NLRTI**

MOEFCC*, NDMA,NDRF, CAPF, NIDM

Training

Curriculum
Development

2

Awareness
3
Genera on

Capacity Development

Recurring/ Regular (RR)
• Promo ng awareness, alertness andpreparedness• Training programs for public, PRIs/
ULBs• Carry out mass media campaigns inforest ﬁre prone areas• Create awareness of forest ﬁrepreven on and control• Strengthening network ofcommunity involvement in forest ﬁrerepor ng, preven on and assistanceto controlling

Short Term (T1)
Update curriculum rela ng to forestry
management courses and training
programmes to include topics relevant
to forest ﬁre preven on and control

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
Recurring/ Regular (RR)
Recurring/ Regular (RR)
Training and orienta on programs forTraining and orienta on programs forcentral govt. staﬀ, SDRF, CDEF,
state govt. staﬀ, and other*$community, volunteers and other direct
EFD , DMD ,stakeholders such as: CDEF, civil
stakeholders
SDMA, SDMI,
society, volunteers, elected
Short Term (T1)
SIRD, SDRF,
representa ves.
Incorpora ng preven on and
DDMA
Short Term (T1)management of forest ﬁres in the
Incorpora ng preven on andtraining programs of youth such as NCC,
management of forest ﬁres in the
NYKS, Scouts and Guides and NSS
training programs of village volunteers

1

Centre#

MOEFCC*, MHA,NDRF, NDMA,
MOES, MOD, DOS,
MORD, MHUA,NIDM, MYAS

Forest Fires
Sub-Thema c Area forDRR

7.17.5 Capacity Development

NATIONAL DISASTER MANAGEMENT PLAN

259

260

MWCD*, MOEFCC,
NDMA, NIDM

Empowering women,
marginalised
6 communi es, andpersons withdisabili es

Recurring/ Regular (RR)
Incorpora ng gender sensi ve andequitable approaches in capacity
development covering all aspects ofdisaster management at the state,
district, and local levels

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agen cy with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. (**) AICTE, IITs, UGC, NLSDA, IIE, NIESBUD, FSI, FRI. ($) DMD—Disaster Management Department: The state
government department ac ng as the nodal department for disaster management, which is not the same in every state/UT.

•DSJE*, EFD,
SDMA, SIDM,
DDMA, PRIs,
ULBs

MOEFCC, MSDE,MMSME, NDMA,NIDMVoca onal Training/
Skill development

5•

Recurring/ Regular (RR)
Promo ng skill development for mul DMD$, SDMA,
hazard resistant construc on with
RD., SLSDA,
emphasis on ﬁre safety in forest ﬁreDDMAprone areas for diﬀerent types of housing
and infrastructure
Recurring/ Regular (RR)
Guidance to addressing issues ofmarginalised communi es, SC/ST inforest ﬁre prone areas
Promote gender sensi ve andequitable approaches relevant inforest ﬁre prone areas

Recurring/ Regular (RR)
Promo ng the planning and execu on of
emergency drills

MOEFCC*, NDRF,
CAPF, NDMAEFD*, DMD$,
SDMA, RD,
DDMA, SDRF,
F&ES, CDEF,
PoliceCapacity Development
Responsibility – State
Recurring/ Regular (RR)
• Involving forest communi es/ forest
village commi ees, JFM commi ees• Joint execu on of emergency drills
with local bodies – urban and rural inareas prone to forest ﬁres
Recurring/ Regular (RR)
• Conduct training programmes• Crea ng ToT teams for diﬀerent
trades relevant to ﬁre-resistantconstruc on in forest ﬁre prone
areas for diﬀerent types of housing
and infrastructure

Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#

Mock Drills/
Exercises

Centre#4

Forest Fires
Sub-Thema c Area for
DRR

NATIONAL DISASTER MANAGEMENT AUTHORITY

Climate Change Adapta on(CCA)

MOEFCC*, MOES,MHFW, MOJS

MOEFCC*, MOES,
MHA, MOD, MAFW,
NDMA, MSJE, MHFW,NLRTI

Hazard Risk Vulnerability
2 and Capacity Assessment(HRVCA)

3

MOEFCC*, FSI, MOES,
DOS, MHA, MOD,NLRTICentre#Research, Forecas ng, Early
Warning, Data
1
Management, Zoning,
Mapping

Sub-Thema c Area for DRR

Forest Fire7.17.6 Climate Change Risk Management
Climate Change Risk Management
Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State
Medium Term (T2)
Develop Database management
system rela ng to Biological
Disasters & climate change
Recurring/ Regular (RR)
Long Term (T3)•
Supportand cooperate with
• Studies/ assessments of areas
EFD*, DMD$,
central agencies
prone to forest ﬁres, ecological
SDMA, SLRTI• Sponsor state-speciﬁc eﬀorts;
aspects, wildlife concerns
support local eﬀorts• Conduct a detailed ﬁre history to
determine the frequency,
distribu on, and severity of
wildﬁreMedium & Long Term (T2, T3)• Undertake detailed studies on
Recurring/ Regular (RR)
vulnerability and risk under GACCEFD*, DMD$,
Incorporate GACC informa on in
scenarios
SDMA, RD,
DM plans/ reviews• Assess GACC risks of vulnerable
WRD, DSJE,
Medium Term (T2)and marginalised sec ons
SLRTI
Assess GACC risks of vulnerable and• Provide technical support andmarginalised sec ons
guidance for comprehensive
HRVCA considering GACC impacts
Short-Term (T1)
Recurring/ Regular (RR)
• Understand and assess adapta on• Sensi sa on and awareness
EFD*, DMD$,
needs
crea on
SDMA, DDMA,• Study coping mechanisms• Support na onal CCA eﬀorts
PRIs, ULBs
Medium & Long Term (T2, T3)• Coordina on with central• Develop adapta on mechanisms
agencies

NATIONAL DISASTER MANAGEMENT PLAN

261

262

Centre#Climate Change Risk Management
Central/ State Agencies and their Responsibili es
Responsibility – Centre
State#
Responsibility – State• Support the implementa on of• Sponsor and promote stateCCA programs
speciﬁc eﬀorts and local eﬀorts
for GACC mi ga on and• Promote adap ve measures in
adapta onsocial protec on programmes for
Short Term (T1)
the vulnerable groups• Strengthen ecological monitoringof forests to improve theunderstanding of risks from GACC
• Develop local adapta on
strategies and pilot projects
Medium & Long Term (T2, T3)• Sponsor and promote statespeciﬁc eﬀorts and local eﬀorts• Implementa on of GACC
adapta on programs• Integrate adap ve measures insocial protec on programmes forthe vulnerable groups

Notes: (#) Every ministry, department or agency of the government – central and state – not speciﬁcally men oned will also have both direct and indirect suppor ng roledepending on the disaster, loca on and context. (*) The ministry, department or agency with this symbol has or is deemed to have a nodal or lead role, while others
men oned have a direct or explicit suppor ng role. ($) DMD—Disaster Management Department: The state government department ac ng as the nodal department fordisaster management, which is not the same in every state/UT.

Sub-Thema c Area for DRR

Forest FireNATIONAL DISASTER MANAGEMENT AUTHORITYNATIONAL DISASTER MANAGEMENT PLAN

8

Preparedness and Response

8.1 BackgroundResponse measures are those taken immediately a er receiving early warning from the relevant
authority or in an cipa on of an impending disaster, or immediately a er the occurrence of an event
without any warning. The primary goal of response to a disaster is saving lives, protecting property,
environment, and mee ng basic needs of human and other living beings a er the disaster. Its focus ison rescuing those aﬀected and those likely to be aﬀected by the disaster. The UNISDR (2016) deﬁnes
response as:
Ac ons taken directly before, during or immediately a er a disaster in order to save lives,
reduce health impacts, ensure public safety and meet the basic subsistence needs of thepeople aﬀected.
The overarching concern of disaster response is immediate and short-term needs, including
immediate disaster relief. Eﬀec ve, eﬃcient, and mely response relies on disaster risk -informed
preparedness measures, including the development of the response capaci es of individuals,
communi es, organiza ons, countries and the interna onal community. The ins tu onal elements of
response o en include the provision of emergency services and public assistance by public and private
sectors and community sectors, as well as community and volunteer par cipa on. “Emergency
services” are a cri cal set of specialized agencies that have speciﬁc responsibili es in serving andprotec ng people and property in emergency and disaster situa ons. They include civil protec on
authori es, and police and ﬁre services, among many others. The division between the response stage
and the subsequent recovery stage is not clear-cut. Some response ac ons, such as the supply of
temporary housing and water supplies, may extend well into the recovery stage.
Preparedness, as deﬁned by UNISDR (2016), consist of the knowledge and capaci es developed bygovernments, response and recovery organiza ons, communi es and individuals to eﬀec vely
an cipate, respond to and recover from the impacts of likely, imminent or current disasters.
Preparedness ac on is carried out within the context of disaster risk management and aims to build
the capaci es needed to eﬃciently manage all types of emergencies and achieve orderly transi ons
from response to sustained recovery.
Preparedness is based on a sound analysis of disaster risks and good linkages with early warning
systems, and includes such ac vi es as con ngency planning, the stockpiling of equipment andsupplies, the development of arrangements for coordina on, evacua on, and public informa on, andassociated training and ﬁeld exercises. These must be supported by formal ins tu onal, legal, andbudgetary capaci es. The related term “readiness” describes the ability to respond quickly andappropriately when required.
Local level preparedness of people for disasters can help in mi ga ng the impacts of disasters andalso be er response. Involvement of community at local level through PRIs can go a long way inge ng people prepared for countering disasters. In case of disasters, PRIs can play a crucial role inmobilizing people and local resources.
Based on the preparedness, the response process begins as soon as it becomes apparent that adisastrous event is imminent and lasts un l the relevant authori es declare it as over. Response is263

NATIONAL DISASTER MANAGEMENT AUTHORITY

carried out during periods of high stress in highly me-constrained situa ons with limited informa on
and recourses. It is considered as the most visible among various phases of disaster management.
Response includes not only those ac vi es that directly address the immediate needs, such as searchand rescue, ﬁrst aid and temporary shelters, but also rapid mobiliza on of various systems necessary
to coordinate and support the eﬀorts. For eﬀec ve response, all the stakeholders need to ha ve a clear
vision about hazards, its consequences, clarity on plans of ac on and must be well versed with theirroles and responsibili es.
Any emergency requires a quick response to save lives, contain the damage and prevent any
secondary disasters. In most cases, ﬁrst responders such as members of Incident Response Teams(IRT) of district, block, or other agencies (medical ﬁre, police, civil supplies, municipali es) manage
emergencies immediately at the local level. If an emergency escalates beyond t heir capabili es, thelocal administra on must seek assistance from the district administra on or the State Government. If
State Government considers it necessary, it can seek central assistance.
The CCS deals with issues related to defence of the country, law and order, and internal security, policyma ers concerning foreign aﬀairs that have internal or external security implica ons, and economic
and poli cal issues impinging on na onal security. CCS will be involved in the decision-making if thedisaster has serious security implica ons. The NEC will coordinate response in the event of any
threatening disaster situa on or disaster where central assistance is needed. The NEC may give
direc ons to the relevant Ministries/Departments of the GOI, the State Governments, and the State
Authori es regarding measures to be taken by them in response to any speciﬁc threatening disastersitua on or disaster as per needs of the State.
The NDMA has a facilita ve role in disaster risk management in all phases of the disaster management
cycle including response for all types of disasters. The general superintendence, direc on and controlof the Na onal Disaster Response Force (NDRF) is vested in and will be exercised by the NDMA. The
NCMC will deal with major crises that have serious or na onal ramiﬁca ons. These include incidents
such as those requiring close involvement of the security forces and/or intelligence agencies such as
terrorism (counter-insurgency), law and order situa ons, serial bomb blasts, hijacking, air accidents,
threats of nuclear/ radiological terrorism events, CBRN emergencies, detona on of conven onal
weapons, mine disasters, port and harbour emergencies, forest ﬁres, oilﬁeld ﬁres, and oil spills.
The immediate response in the event of a disaster lies with the local authori es with the support ofthe state government, central government and the specialized agencies. The central government
supplements the eﬀorts of state government by providing logis c and ﬁnancial support, deploying
NDRF, Armed Forces, CAPF, and other specialized agencies mandated to respond to par cular typesof disasters. It will depute experts to assist the state government in planning and its implementa on
as per request from the state government.

8.2 Ins tu onal Framework
Chapter-1 provided an overview of the ins tu onal arrangements covering all aspects of disastermanagement. There are speciﬁc tasks, roles and responsibili es in the domain of response, which as
men oned before, is the most cri cal and me-sensi ve aspect of disaster management. This sec onsummarizes the func on and responsibili es of ministries and agencies that have a key role to play indisaster response as per current guidelines. The plan will be updated periodically to reﬂect any
changes in the key roles envisaged to ministries and agencies.

264

NATIONAL DISASTER MANAGEMENT PLAN

No single agency or department can handle a disaster situa on of any scale alone. Diﬀerent
departments must work together to manage the disaster with an objec ve to reduce its impact.
Sec on 37(a) of the DM Act, 2005 mandates that departments/ ministries of Central Government
prepare disaster management plans keeping mi ga on, preparedness and response elements into
considera on. Sec ons 22(2), 24, 30 and 34 of the DM Act, 2005 have clearly laid down various du esrela ng to DM to be performed by various agencies.
The ins tu onal arrangements for the response system consist of the following elements:a) Nodal central ministries with disaster-speciﬁc responsibili es for na onal-level coordina onof the response and mobiliza on of all the necessary resourcesb) Central agencies with disaster-speciﬁc responsibili es for Early Warning Systems and alertsc) Na onal Disaster Response Force (NDRF)
d) State Disaster Response Force (SDRF)
Currently a Na onal Emergency Response Centre (NERC) is func onal in Disaster Management
Division of MHA and establishment of an Integrated Control Room for Emergency Response (ICR -ER)
has been ini ated by MHA. It will be connected to the following control rooms:
•
•
•
•
•
•
•

All agencies designated to provide hazard-speciﬁc early warnings
State Emergency Opera ons Centre (SEOC)
District Emergency Opera ons Centre (DEOC)
NDRF
Integrated Defence Staﬀ (IDS)
MEA
CAPFs

8.3 Na onal Early Warning System
8.3.1 Central Agencies Designated for Natural Hazard-Speciﬁc Early Warnings
Table 8-1: Central Agencies Designated for Natural Hazard-Speciﬁc Early Warnings
SN Hazard
1. Avalanches
2. Cold Wave
3.

Cyclone4.

Drought

5.
6.
7.
8.
9.

Earthquake
Epidemics
FloodsHeat Wave
Landslides

10. Tsunami

Ministry Agency
MOD
Snow and Avalanche Study Establishment (SASE)
MOES
India Meteorological Department (IMD)
India Meteorological Department (IMD)
Regional Specialized Meteorological Centre (RSMC)
MOES
Tropical Cyclone Warning Centres (TCWC) for diﬀerent
regions
Central Drought Relief Commissioner (CDRC) and
MAFW
Crop Weather Watch Group (CWWG)
MOES
India Meteorological Department (IMD)
MHFWMinistry of Health and Family Welfare (MHFW)MOJSCentral Water Commission (CWC)
MOES
India Meteorological Department (IMD)
MOM
Geological Survey of India (GSI)
India Na onal Centre for Oceanic Informa on Services
MOES(INCOIS)265

NATIONAL DISASTER MANAGEMENT AUTHORITY

The GOI has designated speciﬁc agencies (Table 8 -1) to monitor the onset of diﬀerent natural
disasters, set up adequate Early Warning Systems (EWS), and disseminate necessary warnings/ alerts
regarding any impending hazard, for all those hazards where early warning and monitoring is possible
with the currently available technologies and methods. These agencies provide inputs to the MHA,
which will issue alerts and warnings through various communica on channels. The agencies
responsible for EWS will maintain equipment in proper func oning order and conduct simula on drills
to test their efﬁcacy. On their part, the relevant State Government and district administra on shalldisseminate such alerts and warnings on the ground through all possible methods of communica ons
and public announcements.

8.3.2 Role of Central Agencies/ Departments
The Na onal Emergency Response Centre (NERC) will act as the communica on and coordina on hub
for maintaining constant touch with early warning agencies for updated inputs. It will eventually be
upgraded as the Integrated Control Room for Emergency Response (ICR-ER). It will inform State
Emergency Opera ons Centre (SEOC) and District Emergency Opera ons Centre (DEOC) through all
the available communica on channels and mechanisms. The DM Division of the MHA willcommunicate and coordinate with designated early warning agencies, various nodal ministries, andstate governments. It will mobilise reinforcements from the NDRF, Armed Forces and the CAPFs andput together transporta on plans for moving resources. The NDMA will support the overall
coordina on of response as per needs of MHA. The NDMA will be providing general guidance and takedecisions for the deployment of the NDRF. The NDRF will be deployed as required depending on therequest from State Government. The NRDF will always be in opera onal readiness.

8.4 Coordina on of Response at Na onal Level
At the na onal level, the Central Government has assigned nodal responsibili es to speciﬁc ministries
for coordina ng disaster-speciﬁc responses (Table 1-3, Chapter-1). As described in Chapter-1, the NEC
will coordinate response in the event of any threatening disaster situa on or disaster. The State
Government will ac vate the IRTs at State, District, or block level and ensure coordina on with the
SEOC. The SDMA will provide the technical support needed to strengthen the response system.
It is essen al that the ﬁrst responders and relief reach the aﬀected areas in the shortest possible me.
O en, there are inordinate delays due to real constraints imposed by the loca on, nature of disaster
and, most regre ably, due to inadequate pre paredness. In many situa ons, even a delay of six totwelve hours will prove to be too late or unacceptable. To make ma ers worse, relief tend to arrive
in a highly fragmented or uncoordinated form with mul ple organisa ons ac ng independently ofeach other without a cohesive plan, without mechanisms to avoid overlaps and without proper
priori za on of diﬀerent aspects of relief such as shelter, clothing, food, or medicine. From an
opera onal perspec ve, the challenges are similar across most haza rds. The NDMA has formulated
Incident Response System (IRS) Guidelines for the eﬀec ve, eﬃcient, and comprehensive
management of disasters (listed in Annexure -I). The implementa on of NDMA’s IRS Guidelines by theStates will help in standardisa on of opera ons, bring clarity to the roles of various departments andother agencies, which are common to most disaster response situa ons.
The state and district administra on shall iden fy sites for establishment of various facili es as
men oned in the IRS guidelines such as Incident Command Post, relief camp, base, staging area, camp,and helipad, for providing various services during the response. The state and local administra on
must widely disseminate and publicise informa on about these arrangements as mandated in the266

NATIONAL DISASTER MANAGEMENT PLAN

SDMP and DDMP. Since disaster response opera ons are mul faceted, me -sensi ve, extremely fastmoving, and mostly unpredictable, it requires rapid assessment, close coordina on among several
departments, quick decision-making, fast deployment of human resources and machinery as well as
close monitoring. To prevent delays and eliminate ambigui es regarding chain of command, the SDMP
and DDMP must clearly spell out the response organisa on as per IRS. These plans must clearly
iden fy the personnel to be deputed various responsibili es in the IRT at various levels ofadministra on along with proper responsibility and accountability framework. Provision for
implementa on of uniﬁed command in case of involvement of mul ple agencies such as Army, NDRF,
CAPF, and Interna onal Search and Rescue Advisory Group (INSARAG) must be spelt out in the SDMP.
From me to me the DM plan must be tested and rehearsed by carrying out mock exercises.

8.5 Fire and Emergency Services (F&ES)
The Fire and Emergency Service (F&ES) fall within the mandate of the urban local bodies(municipali es/ nagarpalikas) as per cons tu onal provisions (Sec on 7, Schedule 12, Ar cle 243W).
The administra ve and opera onal structures and systems vary fro m state to state. Presently F&ES
are organized by the concerned States and UTs with the MHA rendering advice on protec on,
preven on, reforms and legisla on. The primary role of F&ES is of responding to ﬁre incidents.
However, besides ﬁreﬁgh ng, F&ES a ends to other emergencies such as building collapse, road
traﬃc accidents, human and animal rescue, and several other emergency calls. F&ES also takes partin medical emergencies. The role of F&ES has become mul -dimensional. The role of F&ES extends tothe domain of preven on, especially in urban areas. F&ES is an integral part of the group of agencies
responding to disaster situa ons. F&ES is one of the ﬁrst responders during the Golden Hour a er adisaster and plays a vital role in saving lives and property. Therefore, it is impera ve to adequately
equip and develop the capaci es of F&ES. Further, con nuous training should also be provided to theﬁre staﬀ in using and maintaining the equipment.
F&ES is a key element in the emergency response system. It comes under the 12th schedule of thecons tu on dealing with municipal func ons. At present, States and UTs, and ULBs are managing the
F&ES. The MHA and NDMA will render technical advice to the States, UTs, and central ministries on
ﬁre protec on, preven on, and related legisla on. While in several states, F&ES is under thejurisdic on of Municipal Corpora ons, in others it is under the respec ve Home Department. Only a
few States have enacted their own Fire Act.
The type, scale and standards applicable for equipment and the training of the staﬀ are subject totechnological advances and emerging good global prac ces. Besides, given the regional diﬀerences
and local challenges due to diverse terrains as well as condi ons, some degree of innova on,
customisa on and adapta on are necessary to make for eﬀec ve use and deployment. Both right sizing and down-sizing are required while maintaining the opera onal eﬃciencies of the equipment.
For example, in some urban areas where roads are narrow and large equipment cannot gain quick
access, it may be necessary to use down-sized equipment mounted on small vehicles that haveadequate capacity to carry the equipment. Similarly, in most rural or less developed areas, it is diﬃcult
to maintain and operate the same equipment that are deployed in large ci es. Therefore, rather thanproviding speciﬁca ons or an indica ve list, the NDMP enjoins the agencies responsible for responseto adopt the best prac ces and most appropriate technologies subject to rigorous quality control andtes ng.
In each State, the F&ES have grown according to the ini a ves taken by the States and availability offunds. Government of India has taken many ini a ves to strengthen the techno-legal regime for ﬁresafety. Apart from ini a ng major legal changes, government is also reviewing many laws need to be

267

NATIONAL DISASTER MANAGEMENT AUTHORITY

amended. Government of India has also taken steps for ins tu onal ref orms and organiza onal
restructuring of F&ES. However, it is the responsibility of the State Governments to implement the
major changes for the moderniza on of the F&ES to make them more eﬀec ve.

8.6 Responding to Requests for Central Assistance fromStatesCatastrophic disasters like earthquakes, ﬂoods, cyclones and tsunami result in large casual es andinﬂict tremendous damage on property and infrastructure. The Government of India has establisheda ﬂexible response mechanism for a prompt and eﬀec ve delivery of essen al services as well as
resources to assist a State Government or Union Territory hit hard by a severe disaster. Disastermanagement is considered as the responsibility of the State Governments, and hence the primary
responsibility for undertaking rescue, relief and rehabilita on measures during a disaster lies with theState Governments. The Central Government supplements their eﬀorts through logis c and ﬁnancial
support during severe disasters as requested by the State Governments. Responding to such
emergencies stretches the resources of district and State administra on to the utmost and they may
require and seek the assistance of Central Ministries/ Departments and agencies like the NDRF, Armed
Forces, CAPF, and Specialized Ministries/ Agencies.

8.7 Management of Disasters Impac ng more than one
State
At mes, the impact of disasters occurring in one State may spread over to the areas of other States.
Similarly, preven ve measures in respect of certain disasters, such as ﬂoods, etc. may be required tobe taken in one State, as the impact of their occurrence may aﬀect another. The administra ve
hierarchy of the India consisting of Na onal, State and District level arrangements presents challenges
in respect of disasters impac ng more than one State. Management of such situa ons calls for acoordinated approach, which can respond to a range of issues quite diﬀerent from those that normallypresent themselves – before, during and a er the event. The NCMC will play a major role in handing
such mul -state disasters. The NDMA will encourage iden ﬁca on of such situa ons and promote theestablishment of mechanisms for coordinated strategies for dealing with them by the States andCentral Ministries, departments and other relevant agencies.

8.8 Response System Ac va on
Na onal Disaster Management Plan (NDMP) remains in opera on during all phases of disaster cycle
i.e. mi ga on, preparedness, response and recovery. However, NEC may ac vate disaster response
system (par ally or fully with all support func ons ac vated based on the situa on) on the receipt ofdisaster warning or upon the occurrence of a disaster. The occurrence of disaster may be reported by
the relevant monitoring authori es (both na onal and State) to the NEC by the fastest means. The
NEC will ac vate emergency support func ons, scale of which will commensurate with the demand of
situa on (size, urgency, and intensity of incident).
The ac va on sequence for na onal response in the event of a disaster is as given below:
1. The relevant State Government would assume direct responsibility in the event of a disaster.
2. The MHA would assume direct responsibility in case of Union Territories.
268

NATIONAL DISASTER MANAGEMENT PLAN

3. The response from Central agencies would come into opera on when the relevant State
Government makes a speciﬁc request for Central assistance, ﬁnancial, logis cal, or resources– including transport, search, rescue and relief opera ons by air, inter -State movement ofrelief materials, among others.
4. The direct involvement of Central Agencies will apply to those cases where the GOI has
primary jurisdic on: organisa on of interna onal assistance, response on high seas, andimpact assessment of disasters with the assistance of interna onal agencies, and ﬁnancial
assistance from the Na onal Disaster Response Fund.

8.9 Emergency Func ons and the Responsibili es: Centre
and State
While there are disaster-speciﬁc aspects to the post-disaster response, the emergency func ons arebroadly common to all disasters and there are speciﬁc ministries, departments, or agencies that can
provide that emergency response. Besides, very o en, there are mul ple hazards and secondary
disasters that follow a major disaster. Hence, response intrinsically follows a mul -hazard approach.
Therefore, all the response ac vi es have been summarized in a single responsibility framework
applicable to all types of disasters. The response responsibility framework speciﬁes the major themeof response. It speciﬁes the agencies from the Central and State Government responsible for the major
theme of response. All agencies responsible for response should follow the NDMA’s IRS guidelines,
which will help in ensuring proper accountability and division of responsibili es. Diﬀerent ministries
and departments must provide specialized emergency support to the response eﬀort. Certain
agencies of Central Government will play a lead role, while others will be in a suppor ng role.
The DMD (State Disaster Management Department, i.e., the state’s nodal dept. for DM ) and SDMA
are lead agencies at the state level for coordina on of response. The DDMA is the lead agency for
coordina on of response at District level. Various central ministries, departments, agencies, and state
governments must prepare their own hazard speciﬁc response plans as per guidelines of the NDMA
and in line with the NDMP. They must always ensure preparedness for response and must carry out
regular mock drills and conduct tests of readiness periodically, and the ministries/ departments must
report the status to the NDMA. Agencies responsible for disaster response should develop theirindividual scenario-based plans and SOPs considering mul ple hazards and envisaging diﬀerent
scenarios ranging from least to the worst cases. The scenario-based planning exercises should be partof the preparedness of response agencies at all levels. The major tasks of disaster response given in
the responsibility framework and listed alphabe cally for easy reference are:
1. Communica on
2. Cultural Heritage Sites, their Precincts and Museums — Protec on & Preserva on
3. Data Collec on and Management
4. Disposal of animal carcasses
5. Drinking Water/ Dewatering Pumps/ Sanita on Facili es
6. Early Warning, Maps, Satellite inputs, Informa on Dissemina on
7. Evacua on of People and Animals
8. Fodder for livestock in scarcity-hit areas
9. Food and Essen al Supplies
10. Fuel
11. Housing and Temporary Shelters
12. Management of the dead people
13. Media Rela ons
14. Medical care
269

NATIONAL DISASTER MANAGEMENT AUTHORITY

15. Power
16. Public Health
17. Rehabilita on and Ensuring Safety of Livestock and other Animals, V eterinary Care
18. Relief Employment
19. Relief Logis cs and Supply Chain Management
20. Search and Rescue of People and Animals
21. Transporta on

270

Emergency
Func on*Communica on

SN

1

MOR, MOCI, MOD,
Telecom Providers

Support Agencies:

MCOM, DOT

Lead Agencies:

CentrePreparedness and Response
Central/ State Ministries/ Departments and their Responsibili es
Responsibility – Centre
State
Responsibility – State• Detailed plans for fail safe communica on with all• Failsafe communica on plan isthe early warning agencies (such as IMD, CWC, etc.)
prepared with all early warning
and Control Rooms (Central/ State) for ge ng
agencies
accurate informa on at regular intervals• Logis c sec on of the state level• Restora on of emergency communica on in
IRT coordinates with central
disaster aﬀected areas
agencies to provide eﬀec ve• Emergency response teams to be in place with
communica on support to thedetailed technical plans to restore communica onﬁeld level IRTs for response.
a er the occurrence of a disaster• State and district EOCs are• Provide a dedicated radio frequency for disasterequipped with satellite phones/
Lead Agencies:
communica ons
VHF/ HF as a backup to thelandline
IPRD• Mobile communica on units ﬁ ed with V -SAT
terminals, VHF repeaters, reserve WT VHF Sets,• All communica on equipment,
Support Agencies:
portable mobile towers, etc.
especially the satellite phones arein good working condi on 24x7 on• Con ngency plans including pre-disaster contracts
State/UT, SDMA,
all days through regular tes ng
with suppliers – government and private– for easy
RD, DMD$, SEOC,
availability of resources at the me of emergency• Plans for communica on including
DDMA, all othertelephone and HAM is prepared• Opera onal plan for establishing temporary
relevant
Depts.
for smooth coordina on with thetelecommunica on facili es in the aﬀected areasﬁeld level IRTs
jointly with the State Government• Establish protocols and• Secure, failsafe communica on network among
responsibili es for coordina ng
Central, State and other Control Rooms forwith central agencies and various
exchanging reliable and authen c informa on about
service providers
the aﬀected areas, and resource mobiliza on• Prepare, update and maintain a• Prepare, update and maintain a State wise list ofDistrict wise list of HAM Operators
HAM Operators who could be contacted andwho could be contacted anddeployed at the site of emergency when all other
deployed at the site of emergency
modes of communica on fail8.10 Responsibility Framework for Preparedness and Response

NATIONAL DISASTER MANAGEMENT PLAN

271

272

2

59

MHUA, MTOU,
MOLJSupport Agencies:

MOCU

Lead Agencies:

Centre• Facilitate the development of comprehensive
plan for emergency response including
evacua on, immediate response protocols andprocedures, etc.
• Mobilizing specialised support• Assist in cataloguing and documen ng damages

Na onal DM Guidelines for Cultural Heritage Sites, Museums and Precincts
Na onal DM Guidelines for Museums

Cultural Heritage
Sites, theirPrecincts58 andMuseums59 —Protec on &Preserva on

58

Emergency
Func on*

SN

SDMA, DMD$,
DDMA, SEOC,
SDRF, F&ES,
ULBs, PRIs, CUD,
TOD, SPWD

SupportAgencies:

ARHD

Lead Agencies:• Safety of the people who
engage with the Museums /Cultural Heritage sites andPrecincts.
• Comprehensive plan including
evacua on, immediate
response protocols andprocedures, etc. considering
the speciﬁc challenges
presented by the site/precinct• Crea ng an emergency teamthat includes the management,
administrators and staﬀ of thesite or precinct as well as
representa ves from local
stakeholders• Iden ﬁca on of evacua onroutes, spaces that may act as
temporary refuge areas, anddisplaying these routes andPreparedness and Response
Central/ State Ministries/ Departments and their Responsibili es
Responsibility – Centre
State
Responsibility – State• Inter-Operability (the ability of emergency• Have binding agreements withresponders to communicate among jurisdic ons,
telecom service providers todisciplines, and levels of government using a variety
restore damaged facili es and setof frequency bands, as needed and as authorized) ofup temporary facili es onmobile service providers
emergency basis• Ensure Inter-Operability among
diﬀerent telecom service
providers

NATIONAL DISASTER MANAGEMENT AUTHORITY

Disposal of Animal
Carcasses

3

4

MAFW, MAHDF

Lead Agencies:

NIDM, MOIB,
MCOM, MOST,
MOES, MOJS,
MOEFCC, ministries/
depts. with hazardspeciﬁc
responsibili es

Support Agencies:

MHA, NDMA

Lead Agencies:

Centre• Provide clarity when required in following thena onal guidelines and interna onal norms• Facilitate the support from various na onal
laboratories and ins tu ons relevant for recording
evidence and compiling data on the dead such as
forensic, gene c studies, etc.

• Maintain proper records of all the essen al services
needed for rescue, response and relief phases, bothby the State Governments and by the Central
Ministries/ Departments• Establish a sound repor ng mechanism to meet the
informa on needs of both Central and State
Governments about the disaster response

AHD

Lead Agencies:

State/UT, RD,
SEOC, SDMA,
DDMA, Bureau of
Economics andSta s cs, all otherrelevant Depts.

Support Agencies:

DMD$

Lead Agencies:

Responsibility – State• Adopt SOP in SDMP and DDMP as
per Na onal Guidelines60 and
implement it properly• Ac vate the Animal Carcass
Management Group in the IRS as
per na onal guidelines• Representa ve of SDMA works
with the planning sec on at statelevel for making of Incident Ac on
Plan (IAP) and dissemina on of
informa on.
• Crea on of a cell at the Districtlevel (preferably as part of DEOC)
and place dedicated resources tocollect/ update data on all
essen al services (as per thetemplate given in the IRS
guidelines) which will help during
the response phase for eﬀec verepor ng and compila on.

spaces in a clear manner as
signage, maps, printed
literature, etc., for wide
distribu on• Iden ﬁca on of various kindsof emergency supplies andequipment and their storagefor ease of access should beundertaken

Preparedness and Response
Central/ State Ministries/ Departments and their Responsibili es
Responsibility – CentreState

Na onal Guidelines – Management of the Dead in the A ermath of Disasters, 2010

Data Collec on andManagement

SN

60

Emergency
Func on*NATIONAL DISASTER MANAGEMENT PLAN

273

Emergency
Func on*Drinking Water/
Dewatering Pumps/
Sanita on Facili es

SN

274

5

Support Agencies:
MOJS, MORD,
MHFW, MCAFPD

MDWS, MFPI

Lead Agency:

MHA, MHFW

CentreSuppor ng
Agencies:• Promote strict compliance with minimum standardsof relief as per Sec on 12 of DM Act 2005
• Assist the respec ve state government in providing
disaster-aﬀected areas with clean drinking waterand to prevent the spread of water borne diseases• Assist aﬀected state to address the public healthneeds to prevent and mi gate a sudden outbreak of
epidemic, water and food contamina on as well asother public health-related problems in thea ermath of a disaster• Arrangements with vehicle manufactures for vehicle
mounted RO Systems with integrated power sourceand pouch facility with a condi on that systemshould be in place usually within 6 hours of placing
order.
• Easy availability of chlorine tablets to the State
Government on demand• Arrangements with companies for providing vehicle
mounted heavy duty dewatering pumps with acondi on to make them available usually within 12hours of request• If necessary, assist the state government to containany public health challenges beyond the capabili esof the state administra on

State/UT, SDMA,
RD, DMD$, SEOC,
DDMA, HFWD,
CDEF, all otherrelevant Depts.

Support Agencies:

WSD

Lead Agencies:

Support Agencies:
State/UT, SDMA,
RD, DMD$, SEOC,
DDMA, AGD,
Police, all otherrelevant Depts.

Responsibility – State• Ensure strict compliance withminimum standards of relief asper Sec on 12 of DM Act 2005
• Provide disaster-aﬀected areas
with clean drinking water and toprevent the spread of water borne
diseases• Provide emergency water supplies
when there is scarcity of potablewater• Respond to the public healthneeds to prevent and mi gate asudden outbreak of epidemic,
water and food contamina on as
well as other public health-related
problems in the a ermath of adisaster• Dept. of Water Resources andDrinking Water and Sanita on
works with the logis c sec on of
the state level IRT to provide• Equip and train the staﬀ in carcass
removal/ disposal at pre-iden ﬁedsites to ensure that no other
health hazard is created both forthe staﬀ as well as the public• Use of recommended safety kits
and personal protec on by thestaﬀ deployed in carcass disposal
so that they are not infected• Take measures for dispersal of
ﬁnancial relief as per norms

Preparedness and Response
Central/ State Ministries/ Departments and their Responsibili es
Responsibility – Centre
State

NATIONAL DISASTER MANAGEMENT AUTHORITY

Emergency
Func on*

Early Warning,
Maps, Satellite
Data,
Informa on
Dissemina on

SN

6Ministries andagencies as

Support Agencies:

See Table 8-1 fordiﬀerent disasters
no ﬁed by GOI

Lead Agencies:

CentrePreparedness and Response
Central/ State Ministries/ Departments and their Responsibili es
Responsibility – Centre
State
Responsibility – Stateeﬀec ve services to the ﬁeld level• Facilitate the quick availability of hygienic portable
IRTs
toilets through pre-disaster agreements/ contracts
with suppliers• Necessary arrangements are madefor supplying drinking water• Facilitate the quick availability of packaged drinking
through tankers
water through pre-contracts with suppliers• Necessary arrangements are made• As per request from State/UT, assist in organizing
for supplying chlorine tablets
emergency water supplies when there is scarcity ofpotable water• Arrangements with vehicle
manufactures for vehicle mounted
RO Systems with integrated powersource and pouch facility with acondi on that system should be inplace usually within 6 hours ofplacing order• Arrangements with companies forproviding vehicle mounted heavy
duty dewatering pumps with acondi on to make them available
usually within 6 hours of request• Availability of hygienic portable
toilets and bleaching powder
through pre-disaster agreements/
contracts with suppliers
Lead Agencies:• To disseminate early warning• Issue forecasts, alerts, warnings
signals to the district• Provide early warnings (where possible) to reduce
DMD$administra on, local authori es,
loss of life and property.
and the public at large in the areas
Support Agencies:• Dissemina ng warnings and informa on to all
likely to be aﬀected by a disaster
Central Ministries/ Departments/ Agencies and Stateso as to reduce loss of life andState/UT, SDMA,
Government
property
RD, SEOC, DDMA,• Use of satellite imageries and other scien ﬁc• Dissemina on of warnings andall other relevant
methods for risk assessment and forecas ng
informa on up to the last mile
Depts.

NATIONAL DISASTER MANAGEMENT PLAN

275

Emergency
Func on*Evacua on of
People and Animals

SN

276

7

MOD, CAPF, MRTH,
MOR, MOCI,
ministries/ depts.
with hazard-speciﬁc
responsibili es,
NDRF, CDEF

Support Agencies:

MHA

Lead Agency:

Centredescribed in therelevant NDMA
guideline

Preparedness and Response
Central/ State Ministries/ Departments and their Responsibili es
Responsibility – Centre
State
Responsibility – State• Ensure appropriate compila on/
analysis of received data
• Use of satellite imageries andother scien ﬁc methods for risk
assessment and forecas ng• Quick assessment of evacua onneeds such as the number ofpeople and animals to be
evacuated and mode ofevacua on• Special a en on to evacua on of
PWD
On request, support the aﬀected state government in• Mobilize transport and resources
evacua on of people and animals from areas likely tofor evacua on
Lead Agencies:
be aﬀected by major disaster• Iden fy and prepare sites for
temporary reloca on of aﬀected
DMD$
Special Situa ons:
people and animals• Iden fy requirements of resources• Evacua on of large numbers of people from far
Support Agencies:
for evacua on such as helicopters,
ﬂung areas and islands (e.g., Andaman and Nicobar
aircra s, high speed boats andIslands, Lakshadweep Islands, etc. in cases ofState/UT, SDMA,
ships to be provided to thecyclone)SDRF, RD, SEOC,
aﬀected state government• Evacua on of visitors/pilgrims stranded in remote
F&ES, DDMA,•
Request for central resources, if
Himalayan regions because of inclement weather,
CDEF, all otherneededlandslides, ﬂash ﬂoods and avalanches
relevant Depts.
•
Coordinate with central agencies• Evacua on of ﬁshermen from the high seas in caseto mobilise required resourcesof a cyclone• Monitor the situa on• Earmark resources/ units/ba alions of SDRF for quick
deployment• Prepare handbook/manuals and
SOP for evacua on for people andanimals

NATIONAL DISASTER MANAGEMENT AUTHORITY

Emergency
Func on*

Fodder for Livestockin Scarcity-hit Areas

Food & Essen al
Supplies

SN

8

9

MCAFPD, MFPI

Lead Agencies:

MRTH, MOR

Support Agencies:

MAFW, MAHDF

Lead Agency:

CentrePreparedness and Response
Central/ State Ministries/ Departments and their Responsibili es
Responsibility – Centre
State
Responsibility – State• Undertake review and revise
DMPs and SOPs a er each major
incident• Prepare evacua on planconsidering local condi ons andperiodically update it• Undertake mock/simula on drills• Prepare opera onal checklists• Prepare list of agencies/
organiza ons who could assist in
evacua on• Web-based resource inventory
and its regular updates• Mobilize fodder and ca le feed tomeet shortages, as in drought or
Lead Agency:
scarcity condi ons• Transport fodder from storage
AHD• When required, mobilize fodder and ca le feed tofacili es or collec on centres tomeet shortages, as in drought or scarcity condi ons
the scarcity-hit areas
Support Agencies:• Facilitate transport of fodder from storage facili es• Organize fodder resource andor distant areas to the scarcity-hit areas
State/UT, SDMA,
mobilisa on centres• Enlist PSUs and private agencies for providing fodder
RD, DMD $, SEOC,• Organize collec on centres forand other support
DDMA, EFD, AGD,
fodder and ca le feed
Animal Welfare• Enlist PSUs and private agencies
Organiza ons
for providing fodder and othersupportFacilitate the following:
Lead Agencies:• Dept. of Food and Civil Supply• Availability of adequate and appropriate foodworks with the logis c sec on of
supplies to the disaster-aﬀected areas
FCSD
the state level IRT to provide• Food grains
eﬀec ve services to the ﬁeld level
IRTs for response• Ready-to-eat/ pre-cooked food/ meals• MOU with suppliers to provide• Transport with essen al supplies at strategic
food grains, ready-to-eat/ preloca on

NATIONAL DISASTER MANAGEMENT PLAN

277

Emergency
Func on*

Fuel

SN

278

10

MOD, MOR, MRTH,
MOCI

Support Agencies:

MPNG

Lead Agencies:

MRTH, MOCI, MOR,
MSJE, MHA, FCI

Suppor ng
Agencies :Centre• Petrol pumps are func onal and adequate petrol, oiland diesel are available to Government for relief,
rescue and general public• Adequate supply of petrol, diesel, kerosene and LPG
Gas in the aﬀected areas in close coordina on with
the State Government for general public as well as
emergency responders/equipment• Quick mobiliza on of fuel in hilly areas to avoid
delays caused by complex supply chain to such areas• MOU with suppliers to provide required quan esof family packs of essen al food provisions• Supply of provisions to meet the needs of infants/
small children• Counselling for lacta ng mothers• Prepare FCI storage facili es to supply required foodgrains as per requirement of disaster aﬀected areas

State/UT, SDMA,
RD, DMD $, SEOC,
DDMA, all otherrelevant Depts.

Support Agencies:

FCSD

Lead Agency:

State/UT, SDMA,
RD, DMD $, SEOC,
DDMA, CDEF, allother relevant
Depts.

Suppor ng
Agencies :Responsibility – State• Logis c sec on of the state level
IRT to coordinate with therelevant departments/ agencies toprovide eﬀec ve services (GroundSupport Unit) to the ﬁeld level
IRTs for response• Assess and make the requirementof fuel clear with the Central
Ministry and coordinate thedelivery of fuel through local
arrangements.

cooked food/ meals, family packsof essen al food provisions• Agreements/MoUs withorganisa ons, trusts, and ﬁrms forse ng up community kitchens in
the aﬀected areas• Depending upon the requirement,
coordinate with the relevantCentral Ministry to make sure thatthe supplies reach the site on me• Deploy a dedicated team at the
local level to receive the supplies,
maintain log (manual orcomputerized), and distributethem at required loca ons• Ensure food storage facili es have
suﬃcient stocks and are located inrela vely risk-free loca ons• Supply of provisions to meet theneeds of infants/ small children• Counselling for lacta ng mothers

Preparedness and Response
Central/ State Ministries/ Departments and their Responsibili es
Responsibility – Centre
State

NATIONAL DISASTER MANAGEMENT AUTHORITY

Emergency
Func on*

Housing andTemporary
Shelters

SN

11

MHA, MRTH, MOR,
HUDCO, BMTPC,
CBRI

Support Agencies:

MHUA, MORD

Lead Agencies:

CentrePreparedness and Response
Central/ State Ministries/ Departments and their Responsibili es
Responsibility – Centre
State
Responsibility – State• Ensure suﬃcient availability oftankers/ other vehicles for local
transporta on through therelevant Dept.
• Establish mechanism for stocking
the fuel at strategic loca ons with
relevant agencies• Ensure strict compliance withminimum standards of relief asper Sec on 12 of DM Act 2005
• Logis c sec on of the state level• Ensure strict compliance with minimum standards of
IRT must coordinate with Railways
relief as per Sec on 12 of DM Act 2005
to provide eﬀec ve services to the• Assist the respec ve state government in the task ofﬁeld level IRTs for response
providing temporary, safe, hygienic and secure living• Alternate places for establishment
spaces to meet the needs of people in disasterLead Agency:of facili es as men oned in theaﬀected areas
IRS guidelines such as relief camp,• Providing shelters/ tents to the aﬀected popula on
UDDbase, camp etc. are iden ﬁed inadvance and included in the local• Se ng up of relief camps and catering to the needs
Support Agencies:DM Planof the responders• Iden fy shelter suppliers for• Prior and long-term e-up with prefab shelter
supply of tents/ shelters up to the
manufacturers/ suppliers, and tent manufacturers to State/UT, SDMA,
RD, DMD$, SEOC,
village level and have MoUs forprovide shelters at the site usually within 24 hours
DDMA, all othersupply at short no ce (usually lessof placement of orders
than 24 hours) as per requirement• Establish regional logis c facili es (covering 5 major relevant Depts.
• Stockpile tents, tarpaulins andregions in the country) that are well-coordinatedtemporary shelter material inwith the corresponding NDRF regional unit toregional warehouses/ stores/ ERCs
maintain stocks of temporary shelters, tents and• Depending upon the requirement,
other non-food resources
coordinate with the relevantCentral Ministry to make sure thatthe tents/ shelters reach the site
on me

NATIONAL DISASTER MANAGEMENT PLAN

279

280

Management of the
Dead

12

13

62

MOD, CAPF, MHFW,Support Agencies:

MHA, NDMA, NDRF

Lead Agencies:

MRTH, MOR

Support Agencies:

MAFW, MAHDF

Lead Agency:

CentrePreparedness and Response
Central/ State Ministries/ Departments and their Responsibili es
Responsibility – Centre
State
Responsibility – State• Deploy a dedicated team at the
local level to receive the tents/
shelters• Maintain logs (manual orcomputerized) of all material
movements and details of
distribu on to required loca ons• Include provisions forevacua on, safety, andrehabilita on of animals in SDMP
Lead Agency:• Support the se ng up of livestock camps/ shelters• Set up of livestock camps/
for animals in distress due to disasters, including
shelters for animals in distress
AHD
drought
due to disasters, including
drought• Support for care of animals in the camps/ shelters
Support Agencies:• Organize proper care of animals• Assist State/UT in the proper management, andin the camps/ shelters
running of livestock camps/ shelters
State/UT, SDMA,•
Ensure proper management and• Assist in proper rehabilita on of animals
RD, DMD $, SEOC,
running of livestock camps/• Supplement the needs of State/UT to provide
DDMA, EFD, AGD,
shelters
veterinary care to disaster-aﬀected livestock,
Animal Welfare• Proper rehabilita on of animals
including drought-hit areas
Organizations• Provide veterinary care todisaster-aﬀected livestock,
including in drought-hit areas• Provide guidance and support depending on the• Adopt SOP in SDMP and DDMP as
Lead Agency:
type of disaster and challenges faced by the state
per NDMA guidelines62 andgovernment
implement it properly
SDRF• Provide clarity when required in following the• Establishing Dead Body
recommended interna onal prac ces as prescribedManagement Group in the IRS atin relevant NDMA guidelines61 and interna onal
state and district levels as per
norms such as those of the IRC
na onal guidelines

NDMA Guidelines – Management of the Dead in the A ermath of Disasters, 2010
NDMA Guidelines, ibid

Livestock and Other
Animals: Veterinary
Care, Rehabilita on
and Ensuring Safety

SN

61

Emergency
Func on*NATIONAL DISASTER MANAGEMENT AUTHORITY

SN

Emergency
Func on*

MHA, MRTH, MOR,
ministries/
departments withhazard-speciﬁc
responsibili es,
CDEF

Centre• Facilitate the support from various na onal
laboratories and ins tu ons relevant for recording
evidence and compiling data on the dead such as
forensic, DNA studies, etc.
• If necessary, assist the state government to containany public health challenges beyond the capabili esof the state administra on

Support Agencies:
State/UT, SDMA,
RD, DMD$, SEOC,
F&ES, DDMA,
CDEF, all otherrelevant Depts.

Responsibility – State• Deploy trained squads for
detec on and recovery of thesurvivors and the dead as early as
possible a er the event• The recovery team will use basic
personal protec ve kit and follow
adequate precau ons• Follow the protocols for theiden ﬁca on of the dead,recording evidence, transport andburial (i.e., disposal as per norms)• Follow protocols to maintain the
dignity of the dead in all possibleways• If required, establish temporary
mortuaries with adequate
facili es where it is possible• In special cases, appropriatearrangements and relevant
protocol must be followed forvic ms in certain types of disasterkeeping in view the safety ofsurvivors and emergency workers• Inform the aﬀected community bygiving wide publicity to theprocedure for the management of
the dead• Take urgent steps for release of
ex-gra a payment• Ensure to the extent possible
ethical management of the dead,along with respect for religious
and cultural sensi vi es

Preparedness and Response
Central/ State Ministries/ Departments and their Responsibili es
Responsibility – Centre
State

NATIONAL DISASTER MANAGEMENT PLAN

281

282

14

MCOM, MOST,
MOES, MOJS,
MOEFCC, ministries/
departments withhazard-speciﬁc
responsibili es

Support Agencies:

MOIB, MHA, NDMA

Lead Agencies:

CentrePreparedness and Response
Central/ State Ministries/ Departments and their Responsibili es
Responsibility – Centre
State
Responsibility – State• Deal with the psychologicalimpacts as per the na onal
guidelines on psycho-social
support63• Ensure due documenta on suchas inventory record of the dead,dead body iden ﬁca on and all
relevant informa on as given in
the na onal guidelines• Collect, process and disseminate informa on about
an actual or poten al disaster situa on to all
stakeholders so as to facilitate response and relief
opera ons; update informa on on disaster anddisaster vic ms; maintain contacts with mass media;• Dept. of Informa on and Public
inform public regarding the impact of disaster andRela ons works with thethe measures taken for the welfare of the aﬀected
Lead Agency:
Command staﬀ as Informa on andpeoplemedia oﬃcer of the state level IRT• Ethical guidelines for disaster coverage by media as
IPRD
to provide eﬀec ve services
per accepted global standards respec ng dignity and• Ethical guidelines for coverage ofprivacy of the aﬀected communi es and individuals
Support Agencies:
disaster is prepared and shared
and work with media to adopt the guidelines
with all media agencies
through self-regula on as well as oversight by
State/UT, SDMA,•
Plan is prepared for providing/relevant regulatory ins tu ons
RD, DMD $, SEOC,
broadcas ng warnings, do's and
DDMA• Mechanisms for broadcas ng warnings, do's anddon’ts etc. to media and ensure its
don’ts etc. to media and public before (if applicable),dissemina on
during and a er the disasters• Proper schedule for media brieﬁng (once/ twice/thrice daily depending on the severity of thedisaster) and designate a nodal oﬃcer forinterac ng with media on behalf of the Government

Na onal Guidelines – Psycho-Social Support and Mental Health Services in Disasters, 2009

Media
Rela ons

SN

63

Emergency
Func on*NATIONAL DISASTER MANAGEMENT AUTHORITY

Emergency
Func on*

Medical CareSN

15

MOD, CAPF, MOR

Support Agencies:

MHFW

Lead Agencies:

CentrePreparedness and Response
Central/ State Ministries/ Departments and their Responsibili es
Responsibility – Centre
State
Responsibility – State• Assess medical emergency needs• Assess medical emergency needs (if central
in coordina on with central
assistance is required)agencies as per situa on• Medical assistance to the aﬀected state in response• Health and Family Welfare Dept.
to its request for post-disaster emergency medical
works with the logis c sec on ofcare
the state level IRT to provide• Mobile Field Hospitals similar to the military ﬁeld
eﬀec ve services (Medical Unit) tounits that has trauma-care for the disaster-aﬀected
the ﬁeld level IRTs for response.
and serve as a temporary subs tute for the• District wise repository ofcollapsed local general medical and surgical facili es
hospitals (both Government andin the disaster zone
Private), availability of beds,• Gradual improvement of the ﬁeld hospital to
Lead Agencies:
doctors, paramedics and otherconform to global standards
trained staﬀ available along with• Mobile medical care units with OT facility, power
HFWD
other infrastructure details andsources, dedicated trained staﬀ of doctors, andupdate it on a regular basis
paramedics who could be immediately summoned
Support Agencies:• Include the hospital wiseat the me of emergency
informa on in the DM Plans at
State/UT, SDMA,• Mobile medical support units stocked withlocal levels
RD, DMD$, SEOC,
medicines usually needed such as those for BP,• Tie-up with the companies fordiabe cs, heart problems, common ailments, etc. as SDRF, F&ES,
easy availability of common
DDMA, CEDF, allwell as provisions such as: bleaching powder,
medicines during the emergency
chlorine tablets; nutri onal supplements catering to other relevant
situa ons
specialized groups such as lacta ng mothers, elders, departments• Hygienic condi ons are prevalentand children below 6 years of age.
at all mes in various facili es• Timely technical support to the State Governments
established as well as hospitals tofor restora on of damaged hospitals as well as
curb the spread of diseases
infrastructure• Establishment of sound protocols• Ensure strict compliance with minimum standards offor coordina on between state’s
relief as per Sec on 12 of DM Act 2005
health Dept. and the central• Develop specialized facili es to handle chemical,
agencies
biological, radiological and nuclear emergencies• Ensure strict compliance with• Strengthening of emergency departments in all
minimum standards of relief as
hospitals under the central administra on
per Sec on 12 of DM Act 2005

NATIONAL DISASTER MANAGEMENT PLAN

283

Emergency
Func on*

Power

SN

284

16

MNRE, MPNG,
Power genera ng/
distribu on
companies

Support Agencies:

MPWR

Lead Agencies:

CentrePreparedness and Response
Central/ State Ministries/ Departments and their Responsibili es
Responsibility – Centre
State
Responsibility – State• Mobilise Psycho-Social Support and Mental Health• Plan for surge capacity in all theServices (PSSMHS) professionals, para-professionals
major hospitals in the state
and trained community level workers• Develop specialized facili es to• Assist state government in providing PSSMHS
handle chemical, biological,
radiological and nuclear
emergencies• Strengthening of emergency
departments of all major hospitals
in the state• Deploy PSSMHS professionals,
para-professionals and trained
community level workers• Iden fy those requiring
immediate PSSMHS and organise
PSSMHS• Electricity Board and PowerDistribu on Companies work withthe logis c sec on of the state• Assistance to the respec ve state government inlevel IRT to provide eﬀec ve
repairing power infrastructure; restore power supply
services to the ﬁeld level IRTs forin the disaster-aﬀected areas; help power
response
Lead Agency:
companies in establishing emergency power supply• Pre-disaster arrangements for• Arrangements of alternate sources of power such as SEB, DISCOM
quick restora on of power supply
generator sets, solar lanterns, portable tower lights,
with alternate mechanisms toetc. un l resump on of normal power supply
Support Agencies:
cri cal facili es usually within 6 to
12 hours of placement of order• Arrangements with suppliers for emergency supplies State/UT, SDMA,
RD, DMD $, SEOC,
usually within 24 hours of placement of order• Pre-disaster agreements with
DDMA
central and neighbouring state• Technical support to the State Government forgovernments for technical support
restora on of power supply as well as infrastructure
in restora on of power supply andon request
infrastructure• Mobile power supply units orother arrangements with power

NATIONAL DISASTER MANAGEMENT AUTHORITY

Emergency
Func on*Public Health

Relief
Employment

Relief Logis cs andSupply Chain
Management

SN

17

18

19

Lead Agencies:

MLBE, MOJS,MDWS, MAFW

Support Agencies:• Provide necessary support to the disaster-aﬀectedstate government for organizing logis cs for theavailability of relief and emergency supplies of food,medical, and non-food materials

DMD$

Lead Agencies:

State/UT, AGD,
DRD, DMD$,
SDMA, DDMA

Support Agencies:

COR• Provide projects to employ people seeking work indrought aﬀected areas as a relief measure• Provide ﬁnancial support for such schemes

MORD, MOPR, MHA

State/UT, SDMA,
RD, DMD$, SEOC,
SDRF, F&ES,
DDMA, CEDF, allother relevant
departments

Support Agencies:

HFWD

Lead Agencies:

Lead Agencies:• Assess public health (if central assistance isrequired)• Helping to implement public health IRS• Respond to biological emergencies• Opera ng epidemiological surveillance systems• Providing laboratory support• Managing informa on systems• Providing risk communica on• Support public health logis cs (drugs and vaccines),
non-pharmaceu cal interven ons• Support immunisa on, disinfec on, vaccina on andvector control measures

Lead Agencies:

MOD, CAPF, MOR

Support Agencies:

MHFW

Lead Agencies:

CentreResponsibility – Stategenera on companies for quick
deployment at the site during
emergency• Ac va ng Public Health IRS• Assess public health needs incoordina on with central agencies
as per situa on• Coordinate with central agencies
in case of biological emergencies• Coordinate with central agencies
for epidemiological surveillance• Manage public health logis cs(drugs and vaccines), nonpharmaceu cal interven ons• Carry out immunisa on,
disinfec on, vaccina on andvector control measures• Provide opportuni es for unskilled
work in public works for people
seeking work in drought aﬀectedareas as a relief measure• Ensure quick and prompt paymentof wages• Carry out health check-up of thoseseeking work
• Draw from various funds including
Disaster Response Fund to
implement the employment
schemes• Establish a mobilisa on centre at
the airport/railway sta on for the
movement of relief supplies within
the state

Preparedness and Response
Central/ State Ministries/ Departments and their Responsibili es
Responsibility – Centre
State

NATIONAL DISASTER MANAGEMENT PLAN

285

Emergency
Func on*Search and Rescueof People andAnimals

SN

286

20

MOD, CAPF, MHFW,MHA, MRTH, MOCI,
MOR, ministries/
departments withhazard-speciﬁc
responsibili es,
CDEF

Support Agencies:

MHA, NDRF

Lead Agencies:

MOD, MOR, MRTH,
MOCI, MCAFPD,
MFPI, MAFW

Support Agencies:

CentreMHA, ministries withhazard-speciﬁc
responsibili es

Preparedness and Response
Central/ State Ministries/ Departments and their Responsibili es
Responsibility – Centre
State
Responsibility – State
Support Agencies: • Deploy special transporta on for• Support for emergency supply of food and in somecases drinking water; ﬁrst aid kits; temporary
the movement of relief supplies
State/UT, SDMA,
shelters, relief supplies
within the state
RD, SEOC, DDMA,• Make a rapid assessment of emergency relief needs• Make arrangements to receive
all other relevantin consulta on with the aﬀected state governmentand distribute relief andemergency supplies received from• Establish a mobilisa on centre at the airport/railway Depts.
diﬀerent parts of the country
sta on for the movement of relief supplies•
Coordinate transporta on (air,• Deploy special transporta on for the movement ofrail, road, water) with Central
relief supplies
ministries/ departments/ agencies• Coordinate transporta on of material from diﬀerent• Arrange alterna ve means ofparts of the country, and coordinate and provide
transporta on to reach relief
relief supplies from neighbouring states
supplies to the aﬀected loca ons• Coordinate transporta on (air, rail, road, water) f or
if normal transport cannot reachother Central ministries/departments/agencies• Locate, procure and issue resources to Central
agencies involved in disaster response, and supply tothe aﬀected state• Adopt alterna ve means of transporta on to reachrelief supplies to the aﬀected state/district• Fail safe communica on between early warning• Various posi ons of IRTs (State,agencies and EOC of Central and State/ District,
District, Sub-division and Tehsil)
Lead Agencies:
Central Min.
are trained and ac vated for• Adequate NDRF support in a state of readiness to
response at their respec ve
DMD$move at a short no ce
administra ve jurisdic on• Deploy Quick Response Teams (QRT)• SDRF teams are trained, equipped
Support Agencies:and ready to move at a short• Deploy Quick Medical Response Teams (QMR T)
no ce to the aﬀected areas• MoU with suppliers for medicines, vaccines,
State/UT, SDMA,• Strategic sta oning of state-ofdisinfectants, blankets, tarpaulins, tents, boats,
RD, SEOC, SDRF,
the-art equipment for search,
inﬂatable lights, torches, ropes, etc. with a condi on
F&ES, DDMA,
rescue and response withthat they will be supplied at short no ce (usually
CDEF, all otherdedicated trained manpower
within 24 hours) from the placement of order
relevant Depts.
• MoU is in place with suppliers for• SOPs for sending rescue/ relief material from otherblankets, tarpaulins, tents, boats,adjoining States to the aﬀected state immediately

NATIONAL DISASTER MANAGEMENT AUTHORITY

Emergency
Func on*Transporta on

SN

21

MHA, MOD, NHAI,
MOSH, NDRF,
MHFW

Support Agencies:

MRTH, MOR, MOCI

Lead Agencies:

CentrePreparedness and Response
Central/ State Ministries/ Departments and their Responsibili es
Responsibility – Centre
State
Responsibility – State
inﬂatable lights, torches, ropes,• Support of Armed Forces and CAPF as per
etc. with a condi on that they will
requirement
be supplied quickly at short no ce• Coordinate with the state government and district(usually within 24 hours)
administra on for deployment of QRTs and QMRTs• Nodal oﬃcer selected for• SAR in coastal and marine waters
coordina on is in regular touchwith MHA/NDMA for addi onal
requirements (including help fromother Central Ministries)• Deploy Quick Response Teams(QRT)• Deploy Quick Medical Response
Teams (QMRT)• Dept. of Transport works with the• Adequately address the post-disaster transporta on
logis c sec on of the state levelneeds to ensure that the emergency response andIRT to provide eﬀec ve services
recovery eﬀorts are carried out in a mely manner;(Ground Support Unit) to the ﬁeld
restore the public transport; resump on of thelevel IRTs for response
movement of essen al goods
Lead Agencies:• Requirement of transport for the• Pool heavy duty earth moving machineries, treetransporta on of relief material,
cu ers, fork li ers and other required equipment
TRAD
responders are arranged
either at strategic loca ons or centralized
Support Agencies: • Need of the transport of various• Quick deployment of resources and equipment forac vated sec on of the IRT as per
quick repairs/ restora on of roads and highways forState/UT, SDMA,
Incident Ac on Plan is fulﬁlled
movement of rescue and relief teams with theirRD, DMD $, SEOC,
supplies• Indian Railway works with the
DDMA, EFD,
logis c sec on of the state level• Opera onal plans are in place to transport heavy
SPWD, Airport
IRT to provide eﬀec ve services
machinery (like dewatering pumps, boats, etc.)(Ground Support Unit)
through road in close coordina on with the relevant Oﬃcer, all otherrelevant Depts.
Ministries• Restora on of railway tracks andfunc oning of railway at the• Opera onal plans are in place for quick restora on
earliestof train services, providing addi onal railway
wagons, containers and passenger coaches for• Coordinate with central govt. formovement of relief supplies/rescue equipment andtransporta on of relief materials

NATIONAL DISASTER MANAGEMENT PLAN

287

SN

Emergency
Func on*Centre288

personnel and shi ing aﬀected popula on to safer
places/ shi ing stranded passengers in consulta on
with State Government• Availability of diesel locos and drivers in disasteraﬀected areas where power is disrupted/ shut as apreven ve measure; maintain a live roster of such
emergency support systems which can be mobilized
at very short no ce by periodic review of readiness• Establishment of emergency services group within
the railways having staﬀ with experience of working
in disaster situa ons• Con ngency plan is in place to deploy rail coaches as
makeshi shelters if required• Ac va on of railway hospitals/ mobile rail
ambulances to shi / treat injured pa ents in
consulta on with the Health Ministry• Easy availability of heavy equipment available with
the Railways for search and rescue• Plan is in place for quick restora on of airport
runway and restora on of air traﬃc for facilita onof transport of relief teams/ supply/ equipment,
stranded passengers, etc.
• Control room gets ac vated for smoothcoordina on in receiving and dispatching resourcesand equipment in close coordina on with the State
Government

Responsibility – State• Within and near Airports: AAI
works with the logis c sec on of
the state level IRT to provide
eﬀec ve services (Ground Support
Unit) and also provide NodalOﬃcer for coordina on of therelief opera ons• Restora on of Airport at theearliest involving specialised
response force of the central
government• Coordina on with state anddistrict administra on to provide
air support• Cater to the needs of transpor ng
aﬀected people if required

Preparedness and Response
Central/ State Ministries/ Departments and their Responsibili es
Responsibility – Centre
State

NATIONAL DISASTER MANAGEMENT AUTHORITY

Centre• Availability of trained manpower for making night
landing during emergencies• Availability of Air Ambulances at strategic loca ons
with trained manpower and equipment in close
coordina on with the Health Dept.

Preparedness and Response
Central/ State Ministries/ Departments and their Responsibili es
Responsibility – Centre
State
Responsibility – State($) DMD-Disaster Management Department: The state government department ac ng as the nodal department for disaster management, which is not the same in every
state/UT.

(*) The emergency func ons are listed alphabe cally and do not imply any sequence or order of priority. Many of these are executed concurrently and not sequen al ly.

SN

Emergency
Func on*NATIONAL DISASTER MANAGEMENT PLAN

289

NATIONAL DISASTER MANAGEMENT AUTHORITY

290

NATIONAL DISASTER MANAGEMENT PLAN

9

Recovery and Building Back Be er

9.1 Scope
Recovery is deﬁned as:"The restoring or improving of livelihoods and health, as well as economic, physical, social,
cultural and environmental assets, systems and activities, of a disaster-affected community orsociety, aligning with the principles of sustainable development and "build back better", toavoid or reduce future disaster risk." (UNISDR 2016)
The recovery task of rehabilita on and reconstruc on begins soon a er the emergency phase ends,
and should be based on pre-exis ng strategies and policies that facilitate clear ins tu onal
responsibili es for recovery ac on and enable public par cipa on. The focus of recovery is on
restoring livelihoods, shi ing to a path of sustainable development that reduces disaster risk.
Recovery should be conceived as an integral part of ongoing developmental process at appropriate
levels: national, regional, and local. The context in which it will take place will be necessarily shapedby the prevailing social and economic condi ons and the vulnerability of the aﬀected states andcommuni es. Recovery processes are aimed at restoring the capacity of the government andcommuni es to recover from the disaster, strengthen the capabili es to cope with disasters andreduce future disaster risk. Building back be er envisages seizing the opportunity to rebuild to reduce
development deﬁcits of the aﬀected areas going beyond restora on to the pre -disaster ‘normal’.
Recovery programmes, coupled with the heightened public awareness and engagement a er adisaster, aﬀord a valuable opportunity to develop and implement disaster risk reduc on measuresand to apply the “Build Back Be er” principle.
Globally, the approach towards post-disaster restora on and rehabilita on has shi ed to one ofbuilding back be er. While disasters result in considerable disrup on of normal life, enormous
suﬀering, loss of lives and property, global eﬀorts consider the recovery, rehabilita on andreconstruc on phase as an opportunity to “Build Back Be er” (BBB) integra ng disaster risk reduc on
into development measures and making communi es resilient to disasters.
The Sendai Framework expects that a er a disaster, the stakeholders will be prepared for BBB. Exis ng
mechanisms may require strengthening to provide eﬀec ve support and achieve be er
implementa on. Disaster recovery tends to be very diﬃcult and long-drawn out. The reconstruc on
will vary depending on the actual disaster, loca on, pre -disaster condi ons, and the poten ali es thatemerge at that point of me. The NDMP provides a generalized framework for recovery since it is notpossible to an cipate every likely element of building back be er.
The plan for reconstruc on and rehabilita on is designed keeping in view the worst -case scenarios inwhich the capacity of the State and District administra on would be overwhelmed and requireassistance from the Central Government for re-establishing normalcy in the disaster aﬀected areas.
This chapter provides a general framework for the role of Government and its development partners
in restoring a er a disaster, various essen al and basic services. Much of this support will involve thecoordinated working of mul ple agencies – government and non-government. All the agencies are
required to closely monitor response ac vi es and to obtain valuable data regarding the severity andintensity of the event, the aﬀected geographical area and the pote n al unmet cri cal needs of theaﬀected popula on while evolving a comprehensive recovery plan.
291

NATIONAL DISASTER MANAGEMENT AUTHORITY

9.2 Approach
The approach to reconstruc on and recovery is guided by the NPDM 2009. Its salient clauses/ sec ons
are given below:
Para 9.1.1 of the NPDM states that - the approach to the reconstruc on process must becomprehensive to convert adversity into opportunity. Incorpora ng disaster resilient features to‘build back be er’ will be the guiding principle.
The appropriate choice of technology and project impact assessment needs to be carried out toestablish that the projects contemplated do not create any side eﬀects on the physical, socio -culturalor economic environment of the communi es in the aﬀected a reas or in their neighbourhood.
Systems for providing psycho-social support and trauma counselling need to be developed for
implementa on during reconstruc on and recovery phase.
Para 9.2.1 of NPDM states that - Reconstruc on plans and designing of houses need to be apar cipatory process involving the government, aﬀected community, NGOs and the corporate sector.
A er the planning process is over, while owner driven construc on is a preferred op on, contribu onof the NGOs and corporate sector will be encouraged. Reconstruc on programme will be within the
conﬁnes and qualita ve speciﬁca ons laid down by the Government.
Para 9.3.1 of NPDM states that essen al services, social infrastructure and intermediate
shelters/camps will be established in the shortest possible me. For permanent reconstruc on,
ideally, the work including the construc on of houses must be completed within two to three years.
Relevant Central Ministries/Departments and the State Governments should create dedicated project
teams to speed up the reconstruc on process.
Para 9.3.2 of NPDM states that plans for reconstruc on in highly disaster-prone areas need to be
drawn out during the period of normalcy, which may include architectural and structural designs in
consulta on with the various stakeholders.
Para 9.5.1 of NPDM suggest that state governments should give emphasis to restora on of permanent
livelihood of those aﬀected by disasters and to pay special a en on to the needs of women-headedhouseholds, ar sans, farmers and people belonging to marginalised and vulnerable sec ons.

9.3 Recovery Process
Eﬀec ve post -disaster recovery usually has the following three broad aspects:a) Physical aspects of recovery, i.e. restora on and reconstruc on of damaged community
infrastructure, cri cal infrastructure, private houses and cultural heritage buildingsb) Economic aspects of recovery, i.e. livelihoods, produc ve ac vi es and market servicesc) Social recovery, i.e. social and psychological aspects of personal, family and community
func oning and wellbeing

292

NATIONAL DISASTER MANAGEMENT PLAN

The key interven ons under recovery programmes can be classiﬁed under four broad heads:••••

PhysicalEconomic
SocialCross Cu ng Sectors

A er a disaster, a Post-Disaster Needs Assessment (PDNA) must be undertaken, which will be agovernment-led exercise. Depending on the disaster, this may be undertaken by the state government
and through joint eﬀorts of the central and state governments. The PDNA will also provide a pla orm
for the interna onal community to assist in recovery and reconstruc on, where such assistance isrequired. A systema c PDNA will provide a credible basis for recovery and reconstruc on planningthat incorporates risk reduc on measures.
Typically, the PDNA comprises of a ‘Damage and Loss Assessment’ (DALA), a ‘Human Recovery Needs
Assessment’ (HRNA) and a ‘Recovery Framework. The DALA is quan ta ve in nature that can be used
to value damages arising from a hazardous event, and the subsequent economic losses caused by theevent. The DALA highlights the possible consequences on the growth of the economy, the external
sector and the ﬁscal balances, as well as the impact due to decline of income and livelihoods ofhouseholds or individuals. The HRNA focuses on the social impact of disasters, analysing how disasters
aﬀect local pa erns of life, social structures and ins tu ons. A HRNA includes analysis of primary datafrom household or other units of analysis and provides insight into the recovery and reconstruc on
from the viewpoint of the aﬀected community. The Recovery Framework summarizes the recovery
recommenda ons from the sectoral assessments within the PDNA. It outlines the short, medium andlong-term priori es for the recovery including plans for ﬁnancing the BBB.
The UNISDR consulta ve document on building back be er (UNISDR 2017) in support of the Sendai
Framework, states the following:
Recovery is the most complex of the disaster management func ons, involving the greatest number
and variety of stakeholders and aﬀec ng the greatest long-term impact on a community’s social andeconomic success. There are numerous rela onships that must be formed and dependencies thatmust be fostered, many of which are wholly unfamiliar to the recovery stakeholders that typicallyoperate outside of the post-disaster context. An inclusive and comprehensive disaster recovery
framework serves as an agreed way forward to simplify the recovery process thereby maintaining oreven improving development trajectories while ensuring adherence to Build Back Be er principles.
Recovery is most successful when the wide-ranging needs of communi es, organiza ons, andindividuals are addressed in the coordinated manner that recovery frameworks enable.
Disaster recovery process is rarely a set of orderly ac ons. It will consist of several related ac vi essuch as the following:
•
•
•
•
•
•
•
•
•
•
•

Damage and needs assessments (PDNA, DALA, HRNA)
Developing a recovery framework including ins tu onal arrangements and ﬁnancing plan
Measures to ensure socially inclusive recovery
Focus on sustainable development and climate change adapta on
Demoli on of damaged structures, debris clearance, removal and its environmentally safe
disposal
Restora on and even upgrading u li es including communica on networks
Re-establishment of major transport linkages
Temporary housing and detailed building inspec ons
Redevelopment planning
Environmental assessments
Reconstruc on
293

NATIONAL DISASTER MANAGEMENT AUTHORITY•••

Integra ng DRR into various development ini a ves
Financial management
Economic impact analyses

The major steps/ processes of the recovery process and the processes involved are summarized inTable 9-1:

Table 9-1: Major Steps of the Recovery Process and the Key Processes Involved
Major steps

1

294

Post-Disaster Needs
Assessment and Credible
Damage Assessment

2

Developing a vision for
Build-Back Be er (BBB)

3

Ensure coherence of BBB
with the development
programs and goals

4

Incorpora ng resilienceand BBB in recovery
vision5

Balancing recovery
across sectors

6

Priori sing sectors forrecovery

Process• Preliminary assessment reports• Compila on and transmi al of damage and loss data
• Disaster damage assessments led by government andassisted by humanitarian response agencies, and the ini al
damage surveys leading to a comprehensive assessment• Quan ta ve and qualita ve baseline for damage, loss, andneeds across sectors, blocks (taluka) and districts• Results monitoring and evalua on plan for recovery
program• Select the most appropriate and achievable processes andmethodology for conduc ng early and credible damage andneeds assessments• High level mee ngs as well as broad-based, wider
consulta ons with experts, civil society, and key stakeholders• Build consensus among the range of stakeholders within
and outside government• Discussions at top level to align the recovery vision with thegovernment’s broader, longer ter m development goals andgrowth and poverty reduc on strategies
Consulta ons and background studies on:• Disaster resistant physical recovery• Op ons for fast economic recovery• Gender and equity concerns• Vulnerability reduc on• Natural resource conserva on and environmental
protec on• Social recovery• Balance public and private sectors BBB programs• Promote norms for non-discriminatory and equitable asset
disbursement among individuals and communi es• Priori ze infrastructure reconstruc on• Address the recovery of the lives and livelihoods ofdisaster-aﬀected communi es• Show sensi vity to the needs of the aﬀected popula onwith regard to public expecta ons from recovery
Determine rela ve importance of various sectors such as
housing, water and sanita on, governance, transport, power,
communica ons infrastructure, environment, livelihoods,
tourism, social protec on, health, and educa on.

NATIONAL DISASTER MANAGEMENT PLAN

9.4 Early, Mid and Long-term Recovery
UNISDR notes that recovery programmes, coupled with the heightened public awareness andengagement a er a disaster, provide a valuable opportunity to develop and implement disaster risk
reduc on measures and to apply the BBB principle. It is an important component of risk reduc on
strategy and if implemented systema cally, the recovery process prevents the aﬀected communityfrom sliding into further poverty and depriva on. While the DM Act 2005 mandates the government
to carry out rehabilita on and reconstruc on ac vi es, it does not explicitly refer to ‘recovery’ as acomponent to be used as a part of disaster management strategy. However, the NPDM 2009
recognizes ‘recovery’ as one of the six elements within the disaster management con nuum where it
is linked to physical, social and economic assets within the overall context of ‘safe development’.
The disaster recovery programmes usually proceed in three dis nct stages to facilitate a sequenced,
priori zed, and ﬂexible mul -sectoral approach. Three recovery stages, in which appropriate policies
and programmes tend to be planned and implemented are: a) Early, b) Mid -Term, and c) Long-Term,
which are described brieﬂy in Table 9-2.

Table 9-2 Recovery Stages
Recovery
Stage
Early

Dura onBrief Descrip on

Within 18 Months

Mid-Term

Within 5 Years(concurrent with earlyrecovery)Within 10 Years

Cash for work, resump on of markets, commerce andtrade, restora on of social services, transi onal andtemporary shelters
Recovery plans for assets and livelihoods, reconstruc onplans for housing, infrastructure, public buildings andcultural heritage buildings
Implemented along with developmental plans:
infrastructure strengthening, environmental, urban andregional planning

Long-Term

The salient provisions of the recovery framework include the following:1) Ins tu onal arrangements: Ensuring ins tu onal mechanisms at the na onal, state, district,and local (urban and rural) levels that clearly deﬁnes roles and responsibili es in recovery2) Coordina on: There is considerable interdependence between stakeholders – government,interna onal agencies, private sector, civil society organiza ons – in realizing the objec vesof recovery and inter-agency coordina on is extremely important3) Public-Private Partnerships (PPP): Par cipa on of the private sector must be leveraged forlarger public good and the Public-Private Partnerships is one eﬀec ve way to facilitate theprivate sector involvement in recovery
4) Informa on and Communica on Technology (ICT): Eﬀec ve use of ICT in recovery
programme, dissemina ng messages among all stakeholders, and providing informa on on
all aspects of recovery programme5) Decision Support System (DSS): Se ng up an adequate DSS that includes Management
Informa on System (MIS), databases, deployment of spa al data management technologies
6) Pool of Exper se: Pooling of professional skills and exper se in diverse areas

295

NATIONAL DISASTER MANAGEMENT AUTHORITY

7) Community Par cipa on: Ensuring the pro-ac ve involvement of communi es, proper
community outreach, empowerment, and gender equity in programme formula on andimplementa on8) Monitoring and Evalua on (M&E): M&E is an important component required for promo ng
transparency in the recovery processes and it should include technical and social audits.

9.5 Reconstruc onLong term recovery eﬀorts must focus on redeveloping and restoring the socio -economic viability ofthe disaster area(s). The reconstruc on phase requires a substan al commitment of me andresources by the Governments (State and Central) and other agencies. It is important to note thatmuch of this commitment would be beyond the scope of tradi onal emergency management
programmes. The reconstruc on challenge involved would most o en be the result of a catastrophic
event that has caused substan al damage over a very large area and/or aﬀected a very large
popula on. These reconstruc on eﬀorts include:••••

Reconstruc on of public infrastructures and social services damaged by the disaster, which
can be completed over the long-term
Re-establishment of adequate housing to replace that which has been destroyed
Restora on of jobs/ livelihood that was lost
Restora on of the economic base of the disaster areas

9.6 Co-ordina on of Reconstruc on
Recovery eﬀorts require the coordina on at several levels of government and the stakeholder
ins tu ons having speciﬁc responsibili es for central, state, private sector, voluntary organiza ons,
and interna onal aid agencies.

9.6.1 Central Government
The role of the central government will include among others the following:••••

Coordinate with various stakeholders
Facilitate solicita on and management of donated resources and volunteer s
Coordinate with various stakeholders to promptly resolve recovery issues
Provide resources on “need basis” and which are within the capabili es of Central
Government, as per norms

9.6.2 State Government
The damage assessment and all the phases of recovery and reconstruc on (early to long-term) are theresponsibility of the State/UT government. Some of the key tasks are:
•
•

296

Lead in and support need and damage assessment opera ons
Provide relevant data regarding the severity of the disaster and assessment of individualneeds

NATIONAL DISASTER MANAGEMENT PLAN••

Par cipate in and support public informa on and educa on programmes regarding recovery
eﬀorts and available Central/ State Government assistance
Coordinate with the Central Government and other stakeholders for reconstruc onmanagement

9.6.3 Private Sector
There is a need for facilita ng the involvement of private sector in disaster management and forbusinesses to integrate disaster risk into their management prac ces. There is a need to involve theprivate sector in the areas of:
•
•
•
•
•

Technical support
Reconstruc on eﬀort
Risk management including covering risks to their own assets
Financial support to reconstruc on eﬀorts
Risk-informed investments in recovery eﬀorts

9.6.4 Voluntary Organiza ons and Interna onal Aid Agencies
They may par cipate in the following ac vi es:
1. Joint need and damage assessment
2. Support government eﬀort in reconstruc on process especially in so far as the mandate
requires them
3. Provide technical support to reconstruc on and recovery eﬀorts
4. Assist the government in dissemina ng public informa on regarding recon struc on andrehabilita on plan
5. Training and capacity development of local communi es

9.7 Rehabilita on
9.7.1 Background
Rehabilita on, an integral part of disaster recovery; other being reconstruc on, could be deﬁned as
an overall dynamic and intermediate strategy of ins tu onal reform and reinfor cement,
reconstruc on and improvement of infrastructure and services; aimed towards support to theini a ves and ac ons of the aﬀected popula ons in the poli cal, economic and social domains, aswell as reitera on of sustainable development. Genera lly, rehabilita on package includes
reconstruc on of damaged physical infrastructure and measures to address disaster-induced
psychological problems, as well as economic and social rehabilita on of the people in the aﬀected
region. The rehabilita on is classiﬁed into the following:••••

PhysicalSocialEconomic andPsychological297

NATIONAL DISASTER MANAGEMENT AUTHORITY

9.7.2 Physical Rehabilita on
Physical rehabilita on is a very important facet of rehabilita on. It includes:
•
•

•
•

Reconstruc on of physical infrastructure such as houses, buildings, railways, roads,
communica on network, water supply, electricity, and so on
Short-term and long-term strategies towards watershed management, canal irriga on, social
forestry, crop stabiliza on, alterna ve cropping techniques, job crea on, employment
genera on and environmental protec on
Rehabilita on of agriculture, ar san work and animal husbandry
Adequate provision for subsidies, farm implements, acquisi on of land for reloca on sites,
adherence to land-use planning, ﬂood plain zoning, retroﬁ ng or strengthening of
undamaged houses, and construc on of model houses

9.7.3 Reloca on
Reloca on is a very sensi ve part of the physical rehabilita on process and it must be ensured thatneed based considera ons and not extraneous facto rs should drive the reloca on policy. The local
authori es, in consulta on with the aﬀected popula on and under the guidance of the State
Government shall determine reloca on needs employing criteria relevant to the nature of thecalamity and the extent of damage. Reloca on eﬀorts should invariably include ac vi es such as thefollowing:
•
•
•
•
•
•
•
•
•
•

Avoid secondary displacement as far as possible
Ensure that reloca on when it is unavoidable is undertaken in a socially inclusive manner
taking the marginalised communi es belonging to SC and ST into conﬁdence
Making the processes as gender-sensi ve as possible and giving due considera on to theneeds of sexual and gender minori es
Gain consent of the aﬀected communi es
Clearly deﬁne land acquisi on and alloca on process ensuring transparency and providing
adequate grievance redressal as well as nego a on mechanisms
Take into considera on urban/ rural land use planning before moving ahead
Provide customized reloca on packages
Decentralize powers for undertaking the reloca on process
As far as possible, ensure reloca on site is near to their agricultural lands and/or sources of
livelihood, as applicable
Ensure provision of livelihood rehabilita on measures for relocated communi es, wherevernecessary, to the extent possible

9.7.4 Social Rehabilita on
Social rehabilita on is also an important part of disaster rehabilita on. The vulnerable groups such as
the ar sans, elderly, orphans, single women and young children would need special social support tosurvive the impact of disasters. The rehabilita on plan must have components that do not lose sightof the fact that the vic ms have to undergo the en re process of re -socializa on and adjustments in
a completely unfamiliar social milieu.

298

NATIONAL DISASTER MANAGEMENT PLAN

9.7.5 Revival of Educa onal Ac vi es
Educa onal facili es may suﬀer greatly in a major disaster placing considerable stress on children.
Therefore, the following steps will be helpful in helping children to recover and cope with thesitua on:
•
•
•
•
•
•
•

Give regular counselling to teachers and children
Encourage children to a end the schools regularly
Provide wri ng material, and workbooks to children
Make children par cipate in all ac vi es pertaining to resurrec on of normalcy in the school
Try to inculcate conducive a tudes to enable the students to play a posi ve role in self development
Establish village level educa on commi ees
Iden fy local groups that could conduct smooth func oning of educa on ac vi es

9.7.6 Rehabilita on of the Elderly, Women, Children and PWD
The elderly, women, and children are more vulnerable a er a major disaster. Hence the following
measures will help in their rehabilita on:
•
•
•
•
•
•
•
•
•
•
•

Iden fy familiar environs to rehabilitate elderly, women and children
Make eﬀorts to a ach des tute, widows and orphans with their extended family, if that is
not possible then iden fy foster families
Organize regular counselling to strengthen the mental health of women and children
Ini ate various training programmes to make the women economic ally self-suﬃcient
Measures to support PWDs including providing facili es and health care
Give due a en on to health, nutri on and hygiene in the long-term rehabilita on package
for women and children
Ac vate/reac vate the Anganwadis (day-care centres), and old-age homes within the
shortest possible me
Set up at least one mul -purpose community centre per village
Make eﬀorts to build residen al female children homes at the block levelSet up voca onal training camps to improve the skills of orphans and children
Promote self-help groups

9.7.7 Economic Rehabilita on
The major components of economic rehabilita on are livelihood restora on and ensuring the
con nuity of businesses, trade, and commerce. Restoring employment and income genera ng
opportuni es to disaster aﬀected communi es is a vital component of post -disaster reconstruc on.
Livelihood opportuni es are severely disrupted by the destruc on or loss of essen al assets; with theresult that people are unable to engage in normal income genera ng ac vi es; become demoralized
and dependent on humanitarian aid. Economic recovery should be based on:•••

Analysis of exis ng livelihood strategies and sustainability of businesses
A comprehensive analysis of exis ng and future risks
The vulnerabili es of the aﬀected families

299

NATIONAL DISASTER MANAGEMENT AUTHORITY••

The accessibility of linkages to external inﬂuences and ins tu ons including skills andknowledge
Access to func oning markets

As per the para 9.5.1 of NPDM, the state governments must give due importance to the restora onof permanent livelihood of those aﬀected by disasters and special a en on to the needs of women headed households, ar sans, farmers and people belonging to marginalized and vulnerable sec ons.

9.7.8 Psychological Rehabilita on
Another crucial dimension of disaster rehabilita on is psychological rehabilita on. Dealing withvic m’s psychology is a very sensi ve issue and must be dealt with cau on and concern. The
psychological trauma of losing rela ves and friends, and the scars of the shock of disaster event cantake much longer to heal than the stakeholders in disaster management o en realize. Thus,
counselling for stress management should form a con nuous part of a disaster rehabilita on plan.
Eﬀorts should be made to focus more on:••••

Psycho-therapeu c health programmes
Occupa onal therapy
Debrieﬁng and trauma care
Tradi on, values, norms, beliefs, and prac ces of disaster -aﬀected people

9.7.9 Restora on of Damaged Cultural Heritage Sites, their Precincts and Museums
Post disaster repairs and reconstruc on of damaged sites/precincts should always be undertaken
based on sound documenta on and assessment prac ces. Poor reconstruc on prac ces cause further
physical damage to heritage structures, may worsen its structural vulnerability and carries the risk oferasing the heritage features. Reconstruc on and rehabilita on approaches need to consider thelegisla ve frameworks already in place for diﬀerent typologies of heritage sites and precincts. In
general, the following principles should be followed:
•

•

•

•

•

300

An approach of minimal interven on should be undertaken for sites of historic andarchaeological importance and any interven on should be based on sound documenta on
and research. Aspects of authen city and visual integrity should form the basis of any
reconstruc on, repair, and retroﬁ ng a empt.
As far as possible, tradi onal skills and technologies where they s ll exist should be
employed in the repair and restora on of damaged structures. This helps ensure con nuityof building and cra s tradi ons.
Many cultural heritage sites and precincts hold strong cultural/ socio-economic associa ons
with the local popula on and restoring them ins ls a sense of normalcy a er a disaster.
These considera ons should facilitate the conserva on/ reconstruc on of heritage within
the overall recovery plan.
The no on of ‘build back be er’ applied to cultural heritage must not undermine thearcheological and/ or cultural aspects, which means that retroﬁ ng measures for improving
the structural stability of cultural heritage sites, should be undertaken cau ously paying due
a en on to restora on of the original.
All restora on and retroﬁ ng of the cultural heritage must be undertaken only a er
carrying out due consulta on among stakeholders to preserve the cultural, archeologicaland heritage aspects.

NATIONAL DISASTER MANAGEMENT PLAN••

The impact of retroﬁ ng on integrity and cultural value of heritage structures must be
discussed and properly evaluated with due weightage for restora on to pre -disaster status
as closely as possible
Restora on or reconstruc on of heritage a er disasters should go beyond buildings and it
should look at heritage livelihood, tradi onal trades/ cra s etc.

9.8 Fund Mobiliza on
9.8.1 Background
Reconstruction and rehabilita on projects a er a major disaster are usually highly resource intensive.
Such projects are typically ﬁnanced through the State exchequer. Recently, large funds have beenraised from mul lateral/ bilateral funding agencies/ interna onal agencies in close coordina on with
the na onal Governments. The State Government, through the relevant ministry of the Central
Government, shall ﬁnalize the fund mobiliza on strategy, incorpora ng appropriate condi ons
governing ﬂow of funds, its disbursement, and usage as per norms decided by the Central
Government. This will include:••Es ma on of funds required based on the detailed damage assessment reports andconsolida on of the same under sectoral and regional heads andContrac ng with funding agencies and evolving detailed opera ng procedures for fund ﬂow
and corresponding covenants

9.8.2 Mobilizing, Disbursement and Monitoring
The domes c or internal sources of on-budget government funds usually consist of the following:
•
•
•
•
•
•
•
•

Government opera onal and capital budgets
Realloca on among the budget items to disaster-hit sectors
Special levies or taxes; addi onal taxes or surcharge for recovery
Con ngency ﬁnancing arrangements
Issuing sovereign reconstruc on or development bonds
Introducing policy incen ves for the private sector to share recovery costs
Voluntary contribu ons from civil society and private philanthropies
Insurance/ risk transfer mechanisms

External resources for post-disaster reconstruc on can be sourced from mul lateral developmentbanks, regional development banks, bilateral development partners, interna onal NGOs, private
philanthropies and chari es, and remi ances. The possible mul lateral ﬁnancing resources for post disaster recovery and reconstruc on consist mostly of the following types:
•
•
•
•
•

Credits or loans from mul lateral development banks
Realloca on of exis ng por olio of interna onal development ins tu ons
Mul -donor Trust Funds
Debt relief
Ex-ante con ngent component of standard investment opera ons

301

NATIONAL DISASTER MANAGEMENT AUTHORITY•••

Risk InsuranceStandby ﬁnancing
Catastrophic development Deferred Drawdown Op on 64 (DDO)

Some of the important aspects of mobilizing and managing the funds of a large recovery programme
consist of the following and are summarised in Table 9-3:
1.
2.
3.
4.
5.

Review of the Damage and Loss Assessment (DaLA)
Developing a vision and speciﬁc me-bound goals for BBB
Es mate ﬁnancial requirements of the recovery programme
Iden fy likely sources of funds and examine various op ons
Deﬁning and enforcing robust ﬁnancial norms for the ﬁnancial management

Table 9-3: Important aspects in mobilizing and managing the funds of a recovery programme
Major Step
Descrip on
Review of the Damage &Quan ta ve and qualita ve baseline for damage, loss, and
1 Loss Assessment
needs across sectors, blocks (taluka) and districts• Develop the scope and goals of BBB
Developing a vision and• Disaster resilient physical recovery
2 speciﬁc me-bound goals• Op ons for fast economic recovery
for BBB• Set phase-wise be erment targets• Prepare sector-wise and phase-wise ﬁnancial es mates
Es mate ﬁnancial
3 requirements of the• Consulta ons and evalua on of various op ons
recovery programme• Finaliza on of ﬁnancial es mates• Domes c resources:– From the state (on budget) and addi onal fund-raising
op ons (oﬀ budget)– Central grants and other op ons – on and oﬀ the budget
Iden fy likely sources of• Interna onal including borrowing from IFI – facilitated by the
4 funds and examine various
central govt.
op ons• Other Sources:– Donors– Community contribu on– Private sector CSR, PPP• Se ng norms and rules to allocate funds for new
development, retroﬁ ng, owner-driven reconstruc on(mainly homes),
Deﬁning and enforcing
5 robust ﬁnancial norms for• Deﬁning norms eﬃcient disbursement along with the degree
the ﬁnancial managementof ﬂexibility needed in recovery programs• Implemen ng mechanisms for monitoring proper u liza on
including an appropriate MIS
The funds raised through funding agencies are usually accompanied by stringent disbursement andusage restric ons. It is therefore important to monitor the disbursement of funds t o ensure that noneof the covenants are breached. The fund disbursal shall be monitored by:

64

302

The catastrophe development loan with a Deferred Draw Down Op on is a con ngent credit line thatprovides immediate liquidity to IBRD member countries in the a ermath of a natural disaster. It is part of abroad spectrum of risk ﬁnancing instruments available from the World Bank Group to help borrowers planeﬃcient responses to natural disasters .

NATIONAL DISASTER MANAGEMENT PLAN•••

Priori zing resource alloca on across approved projects
Establishing mechanisms for disbursement of funds to the beneﬁciaries
Strengthening the monitoring mechanisms for fund u liza on and progress of
implementa on

9.8.3 Recovery of Reconstruc on Costs
The State Government, in consulta on with the relevant Ministry of the Central Government, canﬁnalize and implement select cost recovery measures such as:•••

Imposing special tax/ surcharge (Central Government)
Imposing local taxes
Issuing tax free Government bonds

303

NATIONAL DISASTER MANAGEMENT AUTHORITY

304

NATIONAL DISASTER MANAGEMENT PLAN

10Capacity Development – An Overview

10.1 Background
This chapter provides an overview of the capacity development measures described in appropriate
contexts in the previous chapters presen ng both a summary and a perspec ve to the capacity
building aspects of the plan. The previous chapters describe speciﬁc aspects of capacity development
in respec ve responsibility frameworks and discussion. The list given in this chapter is not exhaus ve
but indica ve and illustra ve supplemen ng the details present in the previous chapters. While thethemes included are broadly in consonance with na onal, regional, and global prac ces, inevitably
there will be changes that must be incorporated in the periodic revisions of the plan and during its
implementa on. All eﬀorts must be made to follow the emerging best prac ces.
Capacity development covers strengthening of ins tu ons, mechanisms, and capaci es at all levels of
all stakeholders. UNISDR deﬁnes 'Capacity Development' for DRR as follows:"Capacity development is the process by which people, organizations and society systematicallystimulate and develop their capacities over time to achieve social and economic goals. It is a conceptthat extends the term of capacity-building to encompass all aspects of creating and sustaining
capacity growth over time. It involves learning and various types of training, but also continuous
efforts to develop institutions, political awareness, financial resources, technology systems and thewider enabling environment." (UNISDR, 2016).
The Sendai Framework challenges all stakeholders to focus on establishing and increasing capacity to
manage their country’s disaster risk. It is an important component of inves ng in disaster risk
reduc on. In the domain of disaster risk management, the Sendai Framework emphasizes the needfor enhancing the technical, ﬁnancial, and administra ve capabili es of ins tu ons, governments, andcommuni es to deal with the iden fied risks at diﬀerent levels. The framework calls for reinforcing
the capacity to implement and enforce risk reduc on measures. Capacity development commonlyrefers to a process that is driven from the inside and starts from exis ng capacity assets. The Sendai
framework underlines the need for capacity development of women in disaster management andbuilding their ability to par cipate eﬀec vely in managing disaster risk.
Inves ng in capacity development for DRR is a con nuing process of enhancing the capability of
individuals, agencies, and communi es to improve the performance of their DM func ons. The
process of capacity building will include elements of human resource development, i.e., individual
training, organiza onal development such as improving the func oning of groups, and thestrengthening of organiza ons, regula ons, and inst itu ons. Involving stakeholders throughpar cipatory approaches is essen al to establish ownership and commitment. The sustainability ofcapacity development ini a ves increases in direct rela on to the level of par cipa on and ownershipof the internal partners. Mainstreaming of DRR is incomplete without mainstreaming of capacity
building on DRR by diﬀerent central Ministries/Departments and States/UTs. Capacity building should
also include crea ng enabling environment by making relevant provisions in exis ng laws, rules andregula ons etc.
As capacity development entails ac vi es on various levels, i.e. legal and ins tu onal frameworks,systems of organisa ons, organisa on and human and material resources, it is necessary to address
305

NATIONAL DISASTER MANAGEMENT AUTHORITY

challenges on all of them by implemen ng a mix of ac vi es across all me frames – recurring, short,medium and long term. The reason for this is that changes at one level o en require changes at otherlevels too, as the levels are interdependent. Therefore, the focus of many capacity development
eﬀorts for DRR must go beyond human resource development paying enough a en on toorganisa onal and ins tu onal issues. Partnerships and collabora ons are integral to ins tu onal
capacity building. In ins tu onal capacity development, emphasis should also be on use of state-ofthe-art technologies to upgrade the exis ng system s. Public and private investment in disaster risk
preven on and reduc on through structural and non-structural measures are essen al to enhancethe disaster resilience. Inves ng in capacity development is the cost-eﬀec ve way to save lives,
prevent or reduce losses and ensure eﬀec ve recovery and rehabilita on.
The NPDM 2009 underlines the need for a strategic approach to capacity development and notesthat the ac ve and enthusias c par cipa on of various stakeholders is necessary for it to be eﬀec ve.
The na onal policy notes that capacity development must address the challenge of “pu ng in placeappropriate ins tu onal framework, management systems and alloca on of resources for eﬃcient
preven on and handling of disasters.” The capacity development being a con nuous process, it must
address challenges of staﬀ turnover, task of educating new recruits, keeping pace with technicalchanges and incorpora ng the rapid advances in scien ﬁc knowledge.
The NPDM 2009 envisages a pivotal role for the Na onal Ins tute of Disaster Management in capacity
development. Similarly, the State Disaster Management Ins tutes and ATIs should play a lead role in
the States/ UTs. The NPDM envisages capacity development in the domain of DM at all levels ofgovernment including ministries, line departments and across various autonomous ins tu ons. It alsostresses the importance of capacity development eﬀorts to promote community -based DM eﬀorts.
The policy notes that to sustain DRR, it is necessary to undertake capacity development across theeduca on sector covering schools to professional ins tu ons. It recognizes that skill development inall sectors to incorporate mul -hazard resistant features along with strengthening of relevant
licensing, cer ﬁca on, and standards.

10.2 NIDM, NDRF and Other Ins tu ons
The NIDM, in partnership with other research ins tu ons has capacity development as one of its
major responsibili es, along with training, research, documenta on and development of a Na onal
level informa on base. It will network with other knowledge-based ins tu ons and func on within
the broad policies and guidelines laid down by the NDMA. It will organise training of trainers, DMoﬃcials and other stakeholders. The NIDM will strive to emerge as a ‘Centre of Excellence’ in the ﬁeld
of Disaster Management. The NIDM will play an important role in developing and facilita ng theimplementa on of a Na onal training schedule for DM. It will also be the nodal ins tu on for Regionaland Interna onal coopera on for training.
NDRF can also support capacity development and training needs of SDRF, Civil Defence, communityand volunteers in preparedness and response. It is important that the SDRF and other agencies
involved in response are able to work harmoniously for which NDRF must have a role in the trainingof all responders. There are several renowned ins tutes in various States, which are impar ng training
in DM. These will be strengthened with skilled resource persons and ﬁnancial assistance and such
eﬀorts will be replicated by other States/UTs. Also, the DM cells in all Administra ve Training
Ins tutes, Police Academies, State Ins tutes of Rural Development, Training centres of ﬁve CAPFs
from where NDRF is drawn up (BSF, CRPF, CISF, ITBP, and SSB) and the Na onal Training Academy willcontribute most signiﬁcantly in developing DM related skills. The capacity of exis ng ins tutes needs
to be upgraded in accordance with regional and local requirements. There are many other training

306

NATIONAL DISASTER MANAGEMENT PLAN

ins tu ons belonging to various Ministries/ Departments/ Agencies/ PSUs, and they must include DRR
in their training programmes and departmental examina ons.

10.3 Capacity Development of Local Bodies – Rural andUrban
The capaci es of PRIs and ULBs must be developed in the sphere of disaster management. Without
adequate capacity development, the local bodies cannot contribute eﬀec vely to disastermanagement or in ensuring the proper implementa on of DM plans. Capacity development is also
necessary for true empowerment of the bodies of local self-governance. The elected leaders andoﬃcials of PRIs and ULBs should be trained to competently handle diﬀerent types of crises, contributeto disaster preparedness, make proper use of available warnings, organize opera ons such as search,
rescue, relief, medical assistance, and carry out damage assessment. They should also have soundunderstanding of the needs of proper post-disaster rehabilita on. The local leadership can play a bigrole in disaster management in all stages and in DM planning. Capacity development must aim atincreasing the competence of local bodies in all aspects of disaster management, mainstreaming DRR,
and in promo ng a culture of disaster preven on and DRR. The capabili es of the local bodies must
be developed in ﬁnancial, technical, and managerial spheres. The state level training ins tutes (ATI,
SIDM, and others) will develop need-based training programs for the capacity development of ruraland urban local bodies.

10.4 Training of Communi es
Enhancing the capacity of communi es, as they are the ﬁrst responders to disasters, is a signiﬁcantpart of the capacity development process. The Sendai Framework notes the need to build theknowledge of civil society, communi es, and volunteers on disaster risk reduc on. Capacity building
must include awareness, sensi sa on, orienta on, and developing skills of communi es andcommunity leaders. Assistance from NDRF, Civil Defence, civil society organisa ons, local community based organiza ons, and Self-Help Groups will be encouraged. The overall responsibility to give
impetus to leadership and mo va on will rest with local authori es, PRIs and ULBs under the overall
guidance of State and District authori es. Community training programmes should be socially
inclusive, and they should place special emphasis on building the capaci es of women, children,
elderly, SC/ST and PWD.

10.5 Disaster Resource Networks – National, State andDistrict
India Disaster Resource Network (IDRN) is a portal providing na on -wide inventory of DM-relatedresources covering almost all the basic needs. It is a web-based pla orm, for managing the inventoryof equipment, skilled human resources and cri cal supplies for emergency response. Primary focus of
IDRN portal is to enable the decision makers to ﬁnd answers on availability of equipment and humanresources required to combat any emergency. At the state -level, Government of India has encouraged
each state to establish its own State Disaster Resource Network (SDRN) portal on the pa ern of IDRN.
The resource network shall cover na onal level, state-level and district level agencies involved indisaster risk management.

307

NATIONAL DISASTER MANAGEMENT AUTHORITY

10.6 Capacity Development Themes
The capacity development is applicable to all aspects of disaster management. The Central Ministries,
departments and agencies as well as the State/UT Governments will take ac ons for capacity
development of diﬀerent stakeholders. It must be noted that the division of responsibili es between
centre and state are described in greater detail in the responsibility fr amework given in separate
chapters. The capacity development themes for DRR and related responsibili es are summarised inTable 10-1. The speciﬁcs corresponding to each Sub-Thema c Area are men oned in the chaptersshown in the last column of the table.

Table 10-1: Capacity Development for DRR Themes - Centre and State

308

SN

Thema c Area

Sub-Thema c Areas

1

Deployingadvanced
technology andequipment

2

Disaster
Informa on
System3

Disaster Risk
Governance4

Disaster Risk
Management

5

DM and DRR
capacities at
local levels• Adop ng the best global technologies• Iden fying technology needs based on hazard risk andvulnerability and experiences• Procurements of best and most appropriate equipment• Maintaining the resource network• Monitoring and maintaining the resource data
• Regular upda ng the resource data
• Developing fail-safe communica ons with advance technology• Na onal and state level disaster informa on system• Improve data ﬂows across Central Ministries/ Dept./ States andother authorised users• Integra on of HRVCA data with disaster informa on systems• Ensuring reliable and credible database on disaster losses(direct and indirect) and post-disaster reconstruc on• Mainstream and integrate DRR and strengthen ins tu onal
mechanisms for DRR• Promote par cipatory approaches, partnerships and networks• Promote quality standards, cer ﬁca ons, and incen ves• Promote, encourage and facilitate appropriate risk transfer
instruments by collabora ng with insurance companies andﬁnancial Ins tu ons• Design and implement social safety-net mechanisms, including
community-based systems• Disaster resilience of health care systems by integra ng
disaster risk management into primary, secondary and ter ary
health care
• Business resilience, and protec on of livelihoods andproduc ve assets throughout the supply chains, ensure
con nuity of services and integrate disaster risk management
into business models and prac ces• Trainings in DRR at diﬀerent levels of local governance• Improve awareness and preparedness of stakeholders at alllevels• Preparing DM plans, regular upda ng, and mock drills

6

DRR– ineducation,
research andprofessional
disciplines• Incorporate subjects of relevance to DRR in curriculum• Introduced specialized programs, degrees, courses anddiplomas

Chapter (s)where
Responsibili es
are described
3, 4, 5, 7, 8, 9

3, 4, 5, 7, 8, 9

12

3, 4, 5, 7, 8, 9

3, 4, 5, 7, 8, 9

3, 4, 5, 7, 8, 9

NATIONAL DISASTER MANAGEMENT PLAN

SN

Thema c Area

7

Early Warning

8

Emergency
Opera onCentres Strengthening

9

GlobalAnthropogenic
Climate Change
Risks

10

Mainstreaming
DRR

Non-Structural

11 Measures for
DRR

12

Post-2015
GlobalFrameworks –coherence andmutualreinforcement
across DRR
themes

Sub-Thema c Areas• Promote relevant research projects, programs within ins tutes
and through research grants• Technical and professional programs relevant to various
specialized aspects of DRR• Develop ToTs
• Research in diverse areas of DRR• Deploy the state of art methods and technologies• Up-grade technical infrastructure and systems• Improve EW dissemina on and ensure the last mileconnec vity to the most remote parts• Improve the alerts system to make it more relevant todiﬀerent regions and sec ons• Enhance emergency response capabili es• Strengthen EOCs, improve infrastructure, upgrade equipment,
adopt best available technologies• Improve capabili es based on experience a er each disasterevent• Deploy best of ICT• Conduct capacity audits of EOCs
• Set up State and District level EOCs with adequately trained
manpower• Regular reviews and improvement of SOPs, protocols, etc.
• Mobile control rooms• Recognise and address climate change risks in DRR• Strengthen adapta ons to GACC
• Incorpora ng DRR into development plans and programs• Incorpora ng PM’s Ten Point Agenda for DRR intodevelopment plans• Making DRR as an inherent part of all ministry, department,
state development plans• Extending convergence to the domain of DRR• Ins tu onal arrangements, policies, legal support, andregulatory framework• Revision of building codes and standards for rehabilita onreconstruc on prac ces both for urban and rural areas• Norms and incen ves for retroﬁ ng• Reinforce systems to implement, monitor, and enforce
regula ons for DRR to promote disaster-resistant built
environment• Understanding post 2015 global frameworks and theirimplementa on for DRR• Understanding Sendai Framework and its integra on into theimplementa on of DMP at diﬀerent levels• Understanding DRR aspects of SDG and its implementa on for
DRR• Understanding COP21 (Paris Agreement on Climate Change)
and the integra on of climate-related concerns into various
DMPs

Chapter (s)where
Responsibili es
are described

7

7, 8

3, 7

5

3, 4, 5, 7, 8, 9

3309

NATIONAL DISASTER MANAGEMENT AUTHORITY

SN

13

Thema c Area

Preparedness
and Response

Recovery and

14 Build Back
Be er

310

15

Skill
Development
for Disaster
Resilience16

Social Inclusion
in DRR

17

Understanding
Risk

Sub-Thema c Areas• Ins tu onal reforms, moderniza on, and changes in legal
framework• Strengthening of Fire and Emergency Services• Strengthening of the Fire and Emergency Service throughrevamping, ins tu onal reforms, and moderniza on• Comprehensive revamping of Fire and Emergency Services withins tu onal reforms and moderniza on• Adop on and adapta on of emerging global good prac ces• Rigorous training and HRD of ﬁrst responders• Table-top exercises, simula ons, and mock drills to improve
opera onal readiness of the plans• Rescue equipment at all levels• Systems to provide basic services in emergencies• Preparedness and response plans at all levels• Community-based DRR and DM• Post-Disaster Needs Assessment (PDNA) systems and exper se• Credible damage assessment mechanisms and exper se• Planning capabili es to ensuring coherence of BBB with overall
development eﬀorts and goals• Studies and research for incorpora ng resilience into BBB
models• Studies on past disasters and recovery to draw useful lessons• Training and skill development for masons and other ar sans
• Promo ng community-based DM considering speciﬁc needs,
regional diversi es and mul -hazard vulnerabili es• Training on CBDR and preparedness at local levels• Address gender issues, and special needs of children, disabled,
aged, etc. holis cally in the DM context• Promote private sector and civil society involvement• Promote PPPs
• Gender-based vulnerabili es• Scheduled Castes and Scheduled Tribes• Elderly• Children• Persons with Disabili es• Observa on Networks,• Informa on Systems,• Research• Forecas ng• Zoning/ Mapping• Monitoring• Hazard Risk Vulnerability and Capacity Assessment (HVCA)

Chapter (s)where
Responsibili es
are described

8

9

3, 4, 5, 7, 8, 9

4,7,

7

NATIONAL DISASTER MANAGEMENT PLAN

11

Financial Arrangements

11.1 BackgroundThe ﬁnancial aspects of Disaster Risk Management entail various factors ranging from development
planning to immediate relief post disaster, followed by investments made for reconstruc on. As per
the prevailing prac ce, the funds for preparedness, mi ga on and reconstruc on are allocated by theGovernment as a part of budgetary alloca ons.
However, a ﬁrm commitment is made by the Government regarding funds for immediate relief asrecommended by the FC and precipitated for ﬁve years. The FC make s recommenda ons regarding
ﬁnancing of disaster risk management also, amongst other subjects being dealt by it. The Second FC
made a provision for ‘Margin Money’ for mee ng out such con ngencies. Subsequent FCs havereviewed various aspects of funding disaster management in the country in consulta on with various
stakeholders. Based on their recommenda ons, various funds have been maintained by Govt. of India
and States for funding disaster relief. The 13th Finance Commission (FC -XIII) has given its
recommenda ons for maintaining Na onal Disaster Response Fund and State Disaster Response Fundin accordance with the DM Act 2005. The FC-XIV has taken them forward and made relevant
recommenda ons.
The DM Act 2005 has also recommended the Na onal Disaster Mi ga on Fund, which has been under
the considera on of the Government. As of now, the 14th Finance Commission (FC -XIV) has not madeany recommenda on regarding the Na onal Disaster Mi ga on Fund. However, the need for funds isbeing deliberated by the Na onal Authority in consulta on with the stakeholders. Appropriate
measures will be taken accordingly.
The DM Act 2005 has clearly mandated upon the Government to ensure that the funds are provided
by the Ministries and Departments within their budgetary alloca ons for the purpose of disastermanagement. The Act has stressed upon the need for mainstreaming of the Disaster Risk Management
by way of making deﬁnite budgetary arrangements for the purpose by the respec ve Ministries andDepartments within their overall agenda.
As of now, no speciﬁc alloca ons are being made by the Government for disaster management, except
in the cases of speciﬁc projects undertaken by any Ministry or Department. Financial mainstreamingof DRR concepts is necessary to entrench the need for disaster risk resilience within the maindevelopment agenda of the country.

11.2 Na onal Disaster Response FundThe state government is primarily responsible for undertaking rescue, relief and rehabilita on
measures in the event of a disaster. At mes, its eﬀorts need to be strengthened and supplemented
with Central assistance. Providing ﬁnancial assistance for disaster preparedness, restora on,reconstruc on and mi ga on in the event of a natural disaster are not part of Na onal Disaster
Response Fund’s mandate. In the event of a calamity of a severe nature, where the requirement offunds for relief opera ons is beyond the funds available in the State’s Disaster Response Fund account,addi onal Central assistance is provided from Na onal Disaster Response Fund, a er following thelaid down procedure.

311

NATIONAL DISASTER MANAGEMENT AUTHORITY

As per this procedure, the State Government is required to submit a memorandum indica ng thesector wise damage and requirement of funds. On receipt of the memorandum from the State, aninter-Ministerial Central Team is cons tuted and deputed for an on the spot assessment of damage
and requirement of funds for relief opera ons, as per the extant items and norms of State Disaster
Response Fund and Na onal Disaster Response Fund. A Sub-Commi ee of the NEC will examine therequest under Sec on 6 of the DM Act, 2005. The NEC will assess the extent of assistance andexpenditure, which can be funded from the Na onal Disaster Response Fund as per norms and makerecommenda ons. Based on the recommenda ons of Sub-Commi ee of the NEC, a High Level
Commi ee (HLC) will approve the quantum of immediate relief to be released from Na onal Disaster
Response Fund. The Disaster Management Division of MHA will provide support to the HLC. The MHA
shall oversee the u lisa on of funds provided from the Na onal Disaster Response Fund and monitor
compliance with norms.

11.3 State Disaster Response FundThe State Disaster Response Fund shall be used only for mee ng the expenditure for providing
immediate relief to the vic ms of cyclone, drought, earthquake, ﬁre, ﬂood, tsunami, hailstorm,
landslide, avalanche, cloud burst, pest a ac k, frost and cold wave. While the state can draw from State
Disaster Response Fund for the emergency response and relief, there are provisions to adjust a por onof the expense against funds released from Na onal Disaster Response Fund between the ﬁscal year
in which Na onal Disaster Response Fund is released and the expenses incurred by state in theprevious ﬁscal year under State Disaster Response Fund. In case the same state faces another severe
disaster during the same year, no reduc on will be made while releasing assistance from the Na onal
Disaster Response Fund. The state-speciﬁc disasters within the local context in the State, which are
not included in the no ﬁed list of disasters eligible for assistance from State Disaster Response Fundand Na onal Disaster Response Fund, can be met from State Disaster Response Fund within the limitof 10 per cent of the annual funds alloca on of the State Disaster Response Fund. The two funds haveprovisions for the following:
•
•
•
•
•
•
•
•
•

Gratuitous Relief
Search and Rescue opera ons, as per actual cost incurred
Relief measures
Air dropping of essen al supplies
Emergency supply of drinking water
Clearance of aﬀected area, including management of debris
Agriculture, Animal husbandry, ﬁshery, Handicra , ar sans
Repair/ Restora on (of immediate nature) of damaged Infrastructure
Capacity development

The default period of assistance is as per norms prescribed. However, based on assessment of theground situa on, the SEC may extend it beyond the prescribed me limit subject to the condi on that
expenditure on this account should not exceed 25 per cent of State Disaster Response Fund alloca on
for the year. The SEC will organize contribu ons from the relevant State Government, administer theState Disaster Response Fund and invest the accre ons to the State Disaster Response Fund inaccordance with the norms approved by GOI from me to me.

312

NATIONAL DISASTER MANAGEMENT PLAN

State must meet the capacity development expenses from the State Disaster Response Fund and not
Na onal Disaster Response Fund, subject to a limit of 10 per cent of the State Disaster Response Fund.
Capacity Development covers the following:
•
•
•
•
•

Se ng up/strengthening of Emergency Opera on Centres (EOCs) in the State
Training/Capacity Building of stakeholders and func onaries in the State
Suppor ng disaster management centres in the statePrepara on of Disaster Management Plans based on Hazards, Risks, and Vulnerability Analysis
Strengthening of SDMA and DDMA

In most cases, the SEC and, if necessary, a central team will carry out need assessment. The State
Governments must take utmost care and ensure that all individual beneﬁciary-oriented assistance isdisbursed through the beneﬁciary’s bank account. The scale of relief assistance against each item forall disasters including ‘local disaster’ should not exceed the norms of State Disaster Response Fund/
Na onal Disaster Response Fund. Any amount spent by the State for such disasters over and above
the ceiling would be borne out of the resources of the State Government and not from State Disaster
Response Fund.
For disasters needing central support over and above the State Disaster Response Fund, the MHA
processes the request of the state government for support from the Government of India. The
Ministry of Finance will make the budgetary provisions for the relief funds required for strengthening
response mechanisms, disaster management ins tu ons, capacity development of stakeholders, andDRR. The eﬀec ve implementa on of these statutory provisions would place India on a ﬁrm foo ng
for eﬀec vely managing disasters and minimising their nega ve socio -economic consequences.
Another important aspect of disaster management is ﬁnancial resilience. This requires a systema c
approach, combining an op mum mix of ex ante and ex post ﬁnancing mechanisms based inter alia
on the country’s current economic status.

11.4 Na onal Disaster Mi ga on FundAs per Sec on 47 of the DM Act 2005, Central Government may cons tute a Na onal DisasterMi ga on Fund for projects exclusively for the purpose of mi ga on. The FC -XIV restricted its
recommenda on to exis ng arrangements on the ﬁnancing of the already cons tuted funds (Na onal
Disaster Response Fund and State Disaster Response Fund) only, as per its terms of reference. The
FC-XIV did not make any speciﬁc recommenda on for a mi ga on fund.

11.5 Recommendations
Commission

of

the

Fourteenth

Finance

Regarding grants for disaster management, Fourteenth Finance Commission (FC-XIV) has adopted theprocedure of the FC-XIII and used past expenditures on disaster relief to determine the State Disaster
Response Fund corpus. While making recommenda ons, FC-XIV has taken note of the addi onal
responsibility cast on States and their district administra ons under the Disaster Management Act.
FC-XIV has also taken note of the loca on-speciﬁc natural disasters not men oned in the no ﬁed list,
which are unique to some States.

313

NATIONAL DISASTER MANAGEMENT AUTHORITY

11.6 Statutory Provisions
11.6.1 Financing Preven on, Mi ga on, and Preparedness
The provisions rela ng to funding of preven on, mi ga on, and preparedness, as per DM Act 2005
are listed below:
i.
ii.
iii.

iv.

v.

vi.

Sec on 6 (g) provides that NDMA may recommend provision of funds for the purpose ofmi ga on;Sec on 18 (2) (f) provides that SDMAs may recommend provision of funds for mi ga on andpreparedness measures;
Sec on 35 (2) (c) provides that the Central government may ensure appropriate alloca on offunds for preven on of disaster, mi ga on, capacity -building and preparedness by the
Ministries or Departments of the Government of India;
Sec on 36 (e) provides that the Ministries or Departments of Government of India shallallocate funds for measures for preven on of disaster, mi ga on, capacity -building andpreparedness;
Sec on 38 (2) (d) provides that the State Government may allocate funds for measures forpreven on of disaster, mi ga on, capacity -building and preparedness by the departmentsof the Government of the State in accordance with the provisions of the State Plan and theDistrict Plans;
Sec on 39 (c) provides that the departments of the state government shall allocate funds forpreven on of disaster, mi ga on, capa city- building and preparedness

11.6.2 Alloca on by Ministries and Departments
Sec on 49 of DM Act 2005 provides for Alloca on of funds by Ministries and Departments. It states
that:
•

•

Sec on 49 (1) – Every Ministry or Department of the Government of India shall make provisions,in its annual budget, for funds for the purposes of carrying out the ac vi es and programmes
set out in its disaster management plan.
The provisions of sub-sec on (1) shall, muta s mutandis, apply to departments of theGovernment of the State.

11.6.3 Provisions in the Act for Disaster Risk Reduc onSome of the statutory provisions incorporated in t he Disaster Management Act, 2005 formainstreaming DRR and ﬁnancing thereof are reproduced below.
i.

ii.

iii.

314

Sec on 6 (2) (i) provides that the NDMA may take such other measures for the preven on ofdisaster, or the mi ga on, or preparedness and capacity building for dealing with thethreatening disaster situa on or disaster as it may consider necessary;
Sec on 18 (2) (g) provides that the SDMA may review the development plans of thediﬀerent departments of the State and ensure that preven on and mi ga on measures areintegrated therein;
Sec on 22 (2)(b) provides that the SEC may examine the vulnerability of diﬀerent parts of
the State to diﬀerent forms of disasters and specify measures to be taken for theirpreven on or mi ga on;

NATIONAL DISASTER MANAGEMENT PLANiv.

Sec on 23 (4) (b) provides that the State Plan shall include measures to be adopted forpreven on and mi ga on of disasters;
v. Sec on 23 (4) (c) provides that the State Plan shall include the manner in which themi ga on measures shall be integrated with the development plans and projects;
vi. Sec on 23 (4) (d) provides that the State Plan shall include, capacity-building andpreparedness measures to be taken;
vii. Sec on 30 (2) (iv) provides that the District Authority may ensure that the guidelines forpreven on of disasters, mi ga on of its eﬀects, preparedness and response measures aslaid down by the Na onal Authority and the State Authority are followed by all departmentsof the Government at the district level and the local authori es in the district;viii. Sec on 30 (2) (xiii) provides that the District Authority may facilitate community training andawareness programmes for preven on of disaster or mi ga on with the support of local
authori es, governmental and non-governmental organisa ons;ix. Sec on 30 (2) (xiv) provides that the District Authority may set up, maintain, review andupgrade the mechanism for early warnings and dissemina on of proper informa on to
public;x. Sec on 31 (3) (b) provides that the District Plan shall include the measures to be taken, forpreven on and mi ga on of disaster, by the Departments of the Government at the districtlevel and local authori es in the district;xi. Sec on 32 (a) provides that every oﬃce at the district level shall prepare a Plan se ng out:•••

provisions for preven on and mi ga on measures as provided for in the District
Plan and as is assigned to the department or relevant agency;
provisions for taking measures rela ng to capacity-building and preparedness aslaid down in the District Plan;
the response plans and procedures, in the event of, any threatening disastersitua on or disaster;xii. Sec on 35(2) (b) provides that the central government may ensure the integra on of
measures for preven on of disasters and mi ga on by Ministri es or Departments of theGovernment of India into their development plans and projects;
xiii. Sec on 36 (b) provides that every Ministry/ Department of Government of India may
integrate into its development plans and projects, the measures for preven on or mi ga onof disasters in accordance with the guidelines laid down by the Na onal Authority;
xiv. Sec on 37 (1) (a) mandates all the Ministries and Departments of Government of India toprepare a disaster management plan inter alia specifying:••

the measures to be taken by it for preven on and mi ga on of disasters inaccordance with the Na onal Plan;
the speciﬁca ons regarding integra on of mi ga on measures in its development
plans in accordance with the guidelines of the Na onal Authority and the Na onal
Execu ve Commi ee;

xv. Sec on 38 (2) (e) provides that the State Government may ensure integra on of measuresfor preven on of disaster or mi ga on by the departments of the Government of the Statein their development plans and projects;
xvi. Sec on 38 (2) (f) provides that the State Government may integrate in the State
development plan, measures to reduce or mi gate the vulnerability of diﬀerent parts of theState to diﬀerent disasters;
xvii. Sec on 39 (b) provides that the departments of State Government may integrate into its
development plans and projects, the measures for preven on of disaster and mi ga on;

315

NATIONAL DISASTER MANAGEMENT AUTHORITY

xviii. Sec on 40 (1) (a) (ii) mandates all department of the State to prepare a disastermanagement plan that shall integrate strategies for the preven on of disaster or themi ga on of its eﬀects or both with the development plans and programmes by thedepartment

11.7 Implementa on of DRR – Financial Aspects
11.7.1 Public Funded Schemes
The primary mechanism for funding DRR related schemes and projects in India are through Public
Funded Schemes at Central and State level. Various nodal Ministries play a key role in disastermanagement as far as speciﬁc disasters are concerned. These nodal Ministries as well as other
Ministries and Departments have dedicated schemes, aimed at disaster preven on, mi ga on,
capacity building, etc. within their par cular domain. Exis ng examples include the scheme of MHA
for Strengthening of Fire and Emergency Services, Financial assistance to ATIs and other Training
ins tu ons for disaster management, Integrated Coastal Zone Management programme of MOEFCC,
and ﬂood management and ﬂood forecas ng programmes of MOJS. The DOS has a Disaster
Management Support Programme and MOES has a project on Tsunami and Storm Surge Warning
System. NDMA is implemen ng an important World Bank funded project for cyclone risk mi ga on.
The Na onal Cyclone Risk Mi ga on Project encompasses cyclone forecas ng tracking and warning
systems, capacity building and structural measures.
Apart from this, many of the schemes, which are implemented by various ministries/ departments,
have embedded DRR components, as for example, those implemented by the MOEFCC. There aremany other programmes that improve societal resilience, which is a critical component of DRR, suchas the Na onal Rural Health Mission, Mahatma Gandhi Employment Guarantee Scheme, and the
Urban Development’s Urban Renewal Mission.
Outlay for reconstruc on ac vi es are normally embedded in the schemes of the Union Government
to ensure that “Building Back Be er” is in consonance with the approved programs. Post disasterreconstruc on work is funded by the Union Government through increased outlay for the on-going
infrastructure projects in the region and providing more un ed grant to the aﬀected State. The
Centre/State may also u lize funds from interna onal agencies for speciﬁc interven on in a par cularregion in the form of an externally aided project.

11.7.2 Flexi Funds as a part of Centrally Sponsored Schemes
As per Department of Expenditure, Ministry of Finance, the NITI Aayog has issued instruc ons for
ra onaliza on of Centrally Sponsored Schemes (CSS), vide OM No. O —11013/02/2015-CSS & CMC
dated August 17, 2016. As per para 6 of the said OM, ﬂexi-funds available in each CSS has been revised
to 25% for States, and 30% for UTs, of the overall annual alloca on under each scheme. The ﬂexi -fundcomponent within the CSS can be used to achieve the following objec ves:a) To provide ﬂexibility to States to meet local needs and requirements within the overall
objec ve of any given Scheme at the sub-head levelb) To pilot innova on to improve eﬃciency within the overall objec ve of any given Scheme at
the sub-head levelc) To undertake mi ga on/ restora on ac vi es in case of natural calami es, or to sa sfy local
requirements in areas aﬀected by internal security disturbances

316

NATIONAL DISASTER MANAGEMENT PLAN

The u lisa on of ﬂexi-funds for mi ga on/restora on ac vi es in the event of natural calamity must
be in accordance with the broad objec ves of the CSS. It is possible to combine ﬂexi-fund component
across schemes within the same sector but the ﬂexi-funds of a CSS in a par cular sector however, shallnot be diverted to fund ac vi es/schemes in another sector. The ﬂexi -funds cons tute a source offunding for mi ga on ac vi es within overall objec ves of the par cular CSS(s) under which they areallocated and this would s ll leave a gap in terms of funding purely mi ga on related projects
especially those addressing crosscu ng themes that cover mul pl e sectors. The la er would becovered by se ng up of Na onal Disaster Mi ga on Fund and State Disaster Mi ga on Funds.

11.7.3 Externally Aided Projects
Besides the funds which are available through public funded schemes, eﬀorts have also been madeby the centre to mobilize the resources from external funding agencies for vulnerabili es assessment,
capacity development, ins tu onal strengthening of response mechanism and mi ga on measuresetc. The Central Government would con nue to support states for reconstruc on and rehabilita onin the a ermath of major disasters through aid from Word Bank and other such external funding
agencies.

11.8 Risk Transfer and Insurance
As of now Government of India is ac ng as a self-insurer for the purpose of maintaining relief funds(Na onal Disaster Response Fund and State Disaster Response Fund). The funds are monitored by
MHA in consulta on with Ministry of Finance. The amount commi ed for State Disaster Response
Fund is invested by the Union in government securi es. MHA has issued guidelines in consulta on
with Ministry of Finance for the maintenance and encashment of the securi es as and when required.
However, need for projects or risk transfer instruments by private agencies, is also acknowledged by
the Government. The corresponding policy changes and fund requirement is to be deliberated in detailin consulta on with the IRDA, insurance sector and other stakeholders.

317

NATIONAL DISASTER MANAGEMENT AUTHORITY

318

NATIONAL DISASTER MANAGEMENT PLAN

12

Strengthening Disaster Risk Governance12.1 Background
Strengthening disaster risk governance is considered a cornerstone of the eﬀorts to understand,reduce and manage risks in global prac ces (UNDP 2015). Governance encompasses the exercise ofpoli cal, economic and administra ve authority in the management of a country’s aﬀairs at various
levels. It comprises mechanisms, process and ins tu ons through which groups ar culate theirinterest, exercise their legal rights, meet their obliga ons and medi ate their diﬀerences. Governancetranscends government. It goes beyond governmental systems and powers by encouraging pro -ac ve
ci zen engagement. Risk governance encompasses the full range of risks recognized by humansocie es, including health and medical, safety and security, and environmental risks, such as hazards
and disasters.
The concept of governance has its origins partly in the recogni on that many func ons carried out by
public en es are now provided by several governmental as well as private-sector or civil society
en es. Such systems rely on the development and diﬀusion of various types of norms such as state
regula on, self-regula on and market mechanisms (Tierney 2012). It may also rely on other processes
such as nego a on, par cipa on, and engagement, which facilitate collec ve decision making andac on. Disaster governance is nested within and inﬂuenced by overarching societal governancesystems and various aspects such as state-civil society rela onships, economic organiza on, andsocietal transi ons have implica ons for disaster governance. Governance arrangements andstakeholder par cipa on could vary across diﬀerent disaster phases, adding to the complexity of
governance challenges. Risk-spreading mechanisms, including insurance and reinsurance, are integral
part of disaster governance.
UNDP describes disaster risk governance as:"The way in which public authorities, civil servants, media, private sector, and civil society at
community, national and regional levels cooperate in order to manage and reduce disaster andclimate related risks. This means ensuring that sufficient levels of capacity and resources are
made available to prevent, prepare for, manage and recover from disasters. It also entails
mechanisms, institutions and processes for citizens to articulate their interests, exercise theirlegal rights and obligations, and mediate their differences." (UNDP 2013)
UNISDR deﬁnes it as:“The system of ins tu ons, mechanisms, policy and legal frameworks and otherarrangements to guide, coordinate and oversee disaster risk reduc on and related areas ofpolicy.” (UNISDR 2016)
The concept has evolved considerably, and the current thinking acknowledges that one cannot
separate governance of disaster risk from the governance of other types of risks, including those
associated with global climate change, environmental degrada on, ﬁnancial crises, and conﬂict
situa ons (UNDP 2015). From the mid-2000’s onwards, governance was commonly accepted as thecrux of DRR, with comprehensive eﬀorts underway to increase the DRR capacity of na onal and local
ins tu ons; to strengthen policy, legal and planning frameworks; to develop human and ﬁnancial
capaci es; and to promote mul -stakeholder and mul -disciplinary approaches. Eﬀec veness of319

NATIONAL DISASTER MANAGEMENT AUTHORITY

disaster governance can be judged from stakeholder par cipa on, collabora on, accountability andtransparency. There is now greater emphasis on accountability, transparency, responsiveness to theneeds of those most at risk, and ensuring the rule of law/compliance with adequate legal provisions.
These are of crucial importance in fostering development and promo ng risk reduc on.
The capacity of relevant individual actors and organisa ons comes into play when DRR poli cies – atvarious levels from the top to bo om – are implemented. Par cipa on, rule of law, transparency,
responsiveness, consensus orienta on, equity, eﬀec veness, eﬃciency, accountability and strategic
vision are key factors when implemen ng a governance structure aimed at sustainable development
and disaster risk reduc on (UNDP 2004).

12.2 Sendai Framework and Strengthening Disaster Risk
Governance
The Sendai Framework emphasises the importance of governance at diﬀerent levels for an eﬀec veand eﬃcient management of disaster risk. Eﬀec ve risk governance requires clear vision, plans,competence, guidance, and coordina on within and across sectors, as well as par cipa on of relevant
stakeholders, as discussed earlier. Strengthening disas ter risk governance is necessary to foster
collabora on and partnerships for the implementa on of disaster risk reduc on and sustainable
development. The Sendai Framework lays emphasis on the following to strengthen disaster risk
governance:
a)

b)

c)
d)

e)

f)

g)

65

320

Mainstream and integrate disaster risk reduction within and across all sectors and promote
the coherence and development of relevant laws, regulations, and public policies. It must
guide both the public and private sectors through the legal framework that clearly spells out
the roles and responsibilities. It must address disaster risk in publicly owned, managed, or
regulated services and infrastructures. It must encourage actions by persons, households,
communities, and businesses. It has to enhance relevant mechanisms and initiatives fordisaster risk transparency. It must put in place coordination and organizational structures.
Adopt and implement disaster risk reduction strategies and plans, across different levels (local
to national) and timescales, aimed at preventing the creation of risk, the reduction of existingrisk and the strengthening resilience – economic, social, health and environmental.
Carry out assessment of the technical, financial and administrative disaster risk management
capacity to deal with the identified risks at different levels
Promote necessary mechanisms and incentives to ensure high levels of compliance with thesafety-enhancing provisions of sectoral laws and regulations, including those addressing landuse, urban planning, building codes⁶⁵, environment, resource management, health and safety
standards, and update them, where needed, for better disaster risk management
Develop and strengthen mechanisms to periodically review and assess the progress on various
DM plans as well as encourage institutional debates, including by parliamentarians andrelevant officials, on DRR plans
Assign clear roles and tasks to community representatives within disaster risk management
institutions and processes and decision-making through relevant legal frameworks, andundertake comprehensive public and community consultations during the development ofsuch laws and regulations to support their implementation
Establish and strengthen government coordination forums composed of relevant stakeholders
at the national and local levels, such as national and local platforms for disaster risk reduction.

Building Codes: This implies the latest/ updated Indian Standards

NATIONAL DISASTER MANAGEMENT PLAN

h)

i)
j)

k)

Empower local authorities, as appropriate, through regulatory and financial mechanism towork and coordinate with civil society, communities and indigenous peoples and migrants in
disaster risk management at the local level
Work with parliamentarians for disaster risk reduction by developing or amending relevant
legislation and setting budget allocations
Promote the development of quality standards, such as certifications and awards for disasterrisk management, with the participation of the private sector, civil society, professional
associations, scientific organizations and the United Nations
Formulate relevant public policies and laws aimed at addressing issues of prevention or
relocation, where possible, of human settlements in disaster risk-prone zones.

12.3 Responsibility Framework for Strengthening Disaster
Risk Governance
Based on these considera ons, and the increased emphasis globally on strengthening disaster risk
governance to reduce disaster risk and to build resilience, the major tasks, agencies of the central andstate government are presented in a responsibility framework. India currently has in place manyins tu ons dedicated to disaster reduction, response, and for disaster risk governance at the centre
and within the states at various levels from local to the state. However, there is wide varia on in thefunc oning, structure, and capabili es. To strengthen disaster governance, a DM Cell will beestablished in each Central Ministry and a nodal oﬃcer, not below the rank of Joint Secretary will be
appointed.
The NDMP seeks to strengthen the en re system of disaster risk governance in the country using theframework presented here. As discussed in chapter-1, the NDMP envisages the implementa on ofvarious measures across the country over the short (T1), medium (T2), and long-term (T3), ending by
2022, 2027, 2030 respec vely. Many of these are highly ambi ous given the extremely uneven levelof ins tu onal arrangements across various states and districts in the country. Based on the current
status of implementa on of the DM Plans, each central Ministry, Department, and the State
Government will restructure the respec ve DM Plans into these me frames for implementa on while
preparing plans or revising exis ng ones.
The generalized responsibility framework given in this sec on summarizes the themes forstrengthening DR governance and speciﬁes agencies at the centre and state with their respec veroles. The responsibility framework has six thema c areas in which central and state governments
must take ac ons to strengthen disaster risk governance:
1.
2.
3.
4.
5.
6.

Mainstream and integrate DRR and Ins tu onal Strengthening
Capacity Development, Empower Local Authori es and Strengthen Coordina on Mechanism
Promote Par cipatory Approaches, Partnerships and Networks
Work with Elected Representa ves
Grievance Redress Mechanism
Promote Quality Standards, Cer ﬁca ons, and Awards

321

322

• Mainstream andintegratedisaster risk
reduc on within
1and across all
sectors• Ins tu onal
Strengthening

Major Themes

All central
ministries,
departments,
and agencies
associated withdisastermanagement

CentreStrengthening Disaster Risk GovernanceCentral/ State Agencies and their Responsibili es
Responsibility – Centre
State
Responsibility – State
Short Term (T1)
Short Term (T1)
• Cons tu ng a DM cell in eachministry/ dept. and designa on of a
• Empower local authori es
nodal oﬃcer not below the rank of• Carry out assessment of the technical,
Joint Secretaryﬁnancial and administra ve capacity for• Carry out assessment of the technical,
disaster risk management at all levels
ﬁnancial and administra ve capacity
within the statefor disaster risk management
Medium Term (T2)
• Strengthen/ establish coordina on• Improve work culture
and convergence mechanisms• Promote the coherence and development• Promote the coherence andof relevant laws, regula ons, and public
development of relevant laws,
policies
State/UT, SDMA,
regula ons, and public policies
DMD$, RD, DDMA, • Adopt and implement disaster risk
Medium Term (T2)
PRIs, ULBs, all
reduc on strategies and plans, acrossdepartments• Adopt and implement disaster risk
diﬀerent levels and mescale
reduc on strategies and plans, across involved in• Make ins tu ons eﬃcient and responsive
disaster
diﬀerent levels and mescale• Develop mechanisms, and processes tomanagement• Strengthen social inclusion in all
ensure transparency and accountability
aspects of DRR• Enhance relevant mechanisms andLong Term (T3)
ini a ves for transparency• Promote necessary mechanisms and• Strengthen/ establish coordina on andincen ves to ensure high levels of
convergence mechanisms at state,compliance with the safety-enhancing
district, and local levels
provisions
Long Term (T3)
• Make ins tu ons eﬃcient andPromote necessary mechanisms andresponsive; Improve work culture
incen ves to ensure high levels of• Integrate DRR into development
compliance with the safety-enhancing
policies and planning at all levels ofprovisions
administra on and development

NATIONAL DISASTER MANAGEMENT AUTHORITY• Capacity
Development• Empower local
2
authori es• Strengthen
coordina on
mechanisms

Major Themes

NDMA, NIDM
Mul pleministries andagencies as
men onedhazard-wise in
Chapters 1, 4, 7,
8, 9, 10CentreStrengthening Disaster Risk GovernanceCentral/ State Agencies and their Responsibili es
Responsibility – Centre
State
Responsibility – State• Develop mechanisms, and processes
to ensure transparency andaccountability
Recurring
Recurring
Implementa on in state ministries,• Guidance, technical support,
departments, and agencies
oversight, and monitoring to
Short Term (T1)
departments, other agencies, andDevelop capabili es at state, district, block,statesand local levels to understand disaster risk,
develop DM plans, implement relevant• Strengthening of na onal integrated
policies, laws, and ensure compliance withdisaster risk reduc on mechanisms
risk reduc on safety standards• Facilitate coordina on for DRR acrossMedium Term (T2)sectors• Involve communi es, PRIs, municipali es,
State/UT, SDMA,• Facilita ng par cipa on of civil
urban local bodies, etc., elected
DMD$, RD, DDMA,
society organiza ons, private sector,
representa ves, civil society
PRIs, ULBs, Alland educa onal ins tu ons
organiza ons, private sector, anddepartments
Short Term (T1)
educa onal ins tu ons
involved in
Prepara on of DMP/DRRP plans by all• Develop necessary capacity to understanddisastercentral ministries, departments, andand eﬀec vely enforce regulatory norms
management
agenciesand standards for DRR
Medium Term (T2)
• Sensi se all state departments and• Develop necessary capacity toagencies about the importance of social
understand and eﬀec vely enforce
inclusion in DRR
regulatory norms and standards for
DRR• Create awareness of the role ofecosystems and appropriate land-use in• Give special emphasis in suppor ng
DRR
the state-level eﬀorts
Long Term (T3)
• Strengthen the DRR capabili es of all• Assess exis ng DRR capaci es (all types)
central ministries and departments
at various levels and implement capacity

NATIONAL DISASTER MANAGEMENT PLAN

323

324

PromotePar cipatory
3 Approaches,
Partnerships andNetworks

Major Themes

All central
ministries,
departments,
and agencies
associated withdisastermanagement

CentreStrengthening Disaster Risk GovernanceCentral/ State Agencies and their Responsibili es
Responsibility – Centre
State
Responsibility – State
development programmes to address the• Sensi se all central ministries,
requirements
departments, and agencies about theimportance of social inclusion in DRR• Assess current capaci es at the state andlocal levels to address the challenges• Create awareness of the role ofposed by climate change and implement
ecosystems and appropriate land-use
programmes to develop the requiredin DRR
capaci es
Long Term (T3)• Integra ng environmental and• Assess exis ng DRR capaci es (allappropriate land-use management in all
types) at various levels and implement
DRR plans
capacity development programmes toaddress the requirements• Assess current capaci es to address
the challenges posed by climatechange and implement programmes
to develop the required capaci es• Integra ng environmental andappropriate land-use management in
all DRR plans
Short Term (T1)
Recurring
State/UT, SDMA ,• Facilitate the sound assignment of
Promote for par cipa on of communi es,
DMD$, RD, DDMA,
roles and tasks
individuals, households, and businesses in
PRIs, ULBs, All
all aspects of disaster management• Provide guidelines and support todepartments
Short Term (T1)
facilitate par cipatory approaches
involved in
Implement par cipatory approaches inwith accountability
disasterdisaster management based on a mul Medium Term (T2)management,
hazard approach, with emphasis on hazards• Promote interna onal coopera on
especially DRD
more frequent in the region/ loca on
and partnerships (global, regional,
and UDD
SAARC)NATIONAL DISASTER MANAGEMENT AUTHORITYNIDM, NDMA,MHA, MOPA

Nodal Ministries/
departments
no ﬁed by the
GOI hazard-wisefor overall
coordina on andresponse

Work with elected
representa ves

Grievance Redress
Mechanism (GRM)

5

Centre4

Major Themes

State/UT, SDMA,
DMD$, RD, DDMA,
PRIs, ULBs, Alldepartments
involved indisastermanagement,
especially DRD
and UDD

State/UT, SDMA,
DMD$, RD, DDMA,
PRIs, ULBs, alldepartments
involved indisaster response

Recurring• Sensi ze the poli cal leadership• Involve the poli cal leadership in
na onal levels in discussions on DRR

Recurring
Ensuring the func oning of a soundgrievance redress mechanism in all theministries/ agencies involved in disaster
response
Short Term (T1)
• Review exis ng GRM applicable forstate and centre, within state andinter-state needs• Develop plans to strengthen GRM
Medium Term (T2)
Implement plans for strengthening GRM• Promote dialogue and coopera onamong experts, communi es andprac oners of DRR
Long Term (T3)
• Strengthen na onal, sectoral andregional networks of experts,
managers and planners for DRR• Encourage partnerships among
stakeholders across all aspects of DRR

Recurring
Ensuring the func oning of a soundgrievance redress mechanism in all theministries/ agencies involved in disaster
response
Short Term (T1)
• Review exis ng GRM applicable for stateand centre and within state• Develop plans to strengthen GRM
Medium Term (T2)
Implement plans for strengthening GRM

Recurring• Sensi ze the poli cal leadership• Involve the poli cal leadership at state,
district, block, and local levels in
discussions on DRR

Long Term (T3)
Establish and strengthen government
coordina on forums composed of relevant
stakeholders

Strengthening Disaster Risk GovernanceCentral/ State Agencies and their Responsibili es
Responsibility – Centre
State
Responsibility – StateNATIONAL DISASTER MANAGEMENT PLAN

325

326

MRTH, MOR,
AERB, DAE, BIS,
MORD, MHUA,MoHRD,
Professional
bodies, Variousorganiza ons
involved indeveloping
standards(Hazard-wisedetails in
Chapter-7)

CentreStrengthening Disaster Risk GovernanceCentral/ State Agencies and their Responsibili es
Responsibility – Centre
State
Responsibility – State
Recurring
Short Term (T1)
• Ensure implementa on of standards• Formulate laws, regula ons along• Monitor compliancewith wide public consulta ons
Short Term (T1)
• Ini ate consulta ons on na onal
Formulate state-level regula ons alongstandards in the domain of DRR
with wide public consulta ons
Medium Term (T2)
Medium Term (T2)
• Ins tute systems of cer ﬁca ons and State/UT, SDMA,• Develop suitable by-laws speciﬁcally forawards for DRR
urban and rural areas
DMD$, RD, DDMA,
PRIs, ULBs
• Develop enforcement mechanisms• Ins tute systems of cer ﬁca ons andLong Term (T3)awards for DRR• Develop techno-legal regimes• Develop enforcement mechanisms
Long Term (T3)
• Establish ins tu onal arrangements
for monitoring compliance• Implement techno-Legal regimes• Establish standards/ norms/ codes for• Establish ins tu onal arrangements fordisaster risk reduc onmonitoring compliance($) DMD-Disaster Management Department: The state government department ac ng as the nodal department for disaster management, which is not thesame in every state/UT.

Promote quality
standards, such as
6 cer ﬁca ons andawards for disasterrisk management

Major Themes

NATIONAL DISASTER MANAGEMENT AUTHORITYNATIONAL DISASTER MANAGEMENT PLAN

13

Interna onal Coopera on

13.1 Par cipa on in Interna onal Eﬀorts
India plays an ac ve role in global ini a ves on disaster management. India is a signatory to the Sendai
Framework for Disaster Risk Reduc on and is commi ed to achieve the priori es and the objec ves
through systema c and ins tu onal eﬀorts. Wi th mul -dimensional ini a ves and exper se, India
remains commi ed to playing a leading role in strengthening regional and interna onal coopera oneﬀorts in mi ga ng and reducing the eﬀects from disasters.
India is one of the par cipa ng countries and works closely with the UNISDR. The United Na on
Disaster Management Team in India comprises of UN agencies such as Food and Agriculture
Organiza on, Interna onal Labour Organiza on, United Na ons Development Programme, United
Na ons Educa onal, Scien ﬁc and Cultural Organiza on, United Na ons Popula on Fund, United
Na ons High Commission for Refugees, United Na ons Children’s Fund, World Food Programme, andWorld Health Organiza on. India is par cipa ng in the Global Facility for Disaster Risk Reduc on
programme. India is one of the founder members of Asian Disaster Reduc on Centre. India has
agreements with the several countries for coopera on in the ﬁeld of disaster management. India has
been working closely with many countries for the exchange of ideas and exper se in disastermanagement.

13.2 Accep ng Foreign Assistance
As a ma er of policy, the Government of India does not issue any appeal for foreign assistance in thewake of a disaster. However , if the na onal government of another country voluntarily oﬀers
assistance as a goodwill gesture in solidarity with the disaster vic ms, the decision on acceptance ofall such oﬀers vests solely with the Central Government. The primary responsibility for reviewing suchforeign oﬀers of assistance rests with the Ministry of External Aﬀairs which will consult and coordinate
with the Ministry of Home Aﬀairs.
All oﬀers of assistance from foreign governments will be routed through the Ministry of External
Aﬀairs. Oﬀers of assistance in-kind, including technical assistance, emergency rescue teams,
reconstruc on assistance, etc. will be evaluated on a case-by-case basis, in consulta on with the
Ministry of Home Aﬀairs, which will assess the requirements based on inputs from th e concerned
State governments.
In the case of contribu ons from NRIs, PIOs and foreign non-governmental bodies such as
Founda ons, etc. such dona ons may be accepted through the Prime Minister’s and Chief Minister’s
relief funds. All other dona ons from foreign non-governmental en es to Indian non-governmental
en es must be compliant with extant regula ons, including the Foreign Contribu on (Regula on)
Act 2010.

13.3 Accep ng Mul lateral AssistanceIn the case of an oﬀer of assistance from UN Agencies, the Government of India will evaluate andconsider all such oﬀers on its merits. If accepted, GOI will issue direc ons to the respec ve Ministry327

NATIONAL DISASTER MANAGEMENT AUTHORITY

or State Government to coordinate with the concerned UN agency. India will permit UN agencies andinterna onal NGOs already opera ng in the country at the me of the disaster event to con nue
render their humanitarian assistance to people in the aﬀected area in coordina on with the relevantCentral Ministries/Departments and the State Government in accordance with applicable norms andprotocols.

13.4 Fostering Partnerships
India is keen to share exper se and work with other countries in the areas of disaster management.
India can play a major role for capacity building in the Asia Paciﬁc region and looking forward tobuilding sustained regional and interna onal partnerships under the Sendai Framework. India iscommitted to work with countries in the region and beyond in building resilient na ons andcommuni es, against disasters. India is looking forward to engaging with the interna onal community
in providing humanitarian assistance to other countries in need.

328

NATIONAL DISASTER MANAGEMENT PLAN

14

Maintaining, Monitoring andUpda ng the Plan

14.1 Background
Regular maintenance is cri cal to ensure the relevance and eﬀec veness of the DM plans. Plan
maintenance is the dynamic process. The plan must be periodically updated to make it consistent withthe changes in Government policies, ini a ves, and priori es as well as to incorporate technologicalchanges and global experiences. Evalua ng the eﬀec veness of plans involves a combina on oftraining events, exercises, and real-world incidents to determine whether the goals, objec ves,
decisions, ac ons, and ming outlined in the plan led to a successful response. In this way, theemergency preparedness exercises become an integral part of the planning process. The DM planners
must be aware of lessons and prac ces from various parts of India as well as lessons from across theworld. The trainings, mock drills and exercises are crucial to evalua ng the opera onal aspects of theplan, rec fy gaps, and improving the eﬃciency of the plan. The likelihoods of emergencies and actual
occurrences are also occasions for evalua ng the plan, making innova ons, and for upda ng the plan,
SOPs and guidelines. At mes, opera ons experience setbacks due to outdated informa on,
ineﬀec ve procedures, incorrect role assignments, and outdated norms. Further, the priori es for ajurisdic on may change over me as the makeup of the included communi es change, as resources
expand or contract, and as capabili es evolve.

14.2 Training and Drills
At diﬀerent levels, the nodal agency tasked with developing res pec ve DM plan must disseminate it
to all other agencies associated with the plan execu on having speciﬁc responsibili es (Central
Ministries/ Departments, State Governments/ UTs, etc. ). These key stakeholder agencies are required
to train their personnel, so that they have the knowledge, skills and abili es needed to perform thetasks iden ﬁed in the plan. Each agency shall assign nodal oﬃcers for DM and prepare adequate
training schedule. Each nodal agency for DM must hold, in accordance with a mandatory metable,
training workshops with regular mock drills, at least twice a year. Such programs are crucial to ensure
full preparedness and to maintain opera onal readiness of the disaster response opera on teams,
ins tu onal mechanisms, and the equipment.
Mock drills and trainings must be organized to test their readiness to deploy within the shortest
possible me following the ac va on of a disaster response. They shall be conducted in a manner likethat of the drills carried out by ﬁre-ﬁgh ng department or army units. These workshops and drills
must be held at the pre-designated loca ons or base camps under the guidance of the designatedincident commanders and associated departmental heads. The objective of all these trainings anddrills would be to both familiarize the teams with the DMP and to increase their opera onal
eﬃciencies. The trainings are crucial because they go beyond concepts and guidelines into inculca ng
in the individuals the cri cal importance of working as a coherent team for emergency response witha clear chain of command. The workshops and drills will also provide an opportunity to prac ce SOPs.
These workshops would also give the teams an opportunity to develop all the stakeholders into a
cohesive response unit.

329

NATIONAL DISASTER MANAGEMENT AUTHORITY

14.3 Tes ng the Plan and Learning to Improve
Evalua ng the eﬀec veness of a plan involves a combina on of training events, exercises and realme incidents to determine whether the goals, objec ves, decisions, ac ons and mings outlined in
the plan led to a successful response. The purpose of exercises and drills is to promote preparedness
by tes ng the plan with equal par cipa on of all relevant stakeholders. The process of evalua on andremedial ac ons will iden fy, illuminate, and correct problems with the DMP. This process must
capture informa on from exercises, post -disaster cri ques, self-assessments, audits, administra ve
reviews, or lessons-learned processes that may indicate that deﬁciencies exist. Members of theplanning team should reconvene to discuss the problem and to consider and assign responsibility for
genera ng remedies across all mission areas.
Remedial ac ons may involve revising planning assump ons and opera onal concepts, changing
organiza onal tasks, or modifying organiza onal implemen ng instruc ons (i.e., the SOPs/SOGs).
Remedial ac ons may also involve reassessment of capabili es, revisi ng assump ons made in the
DMP, and ﬁnding solu ons to overcome the deﬁciencies. The ﬁnal component of a remedial ac on
process is a mechanism for tracking and following up on the assigned ac ons. As appropriate,signiﬁcant issues and problems iden ﬁed through a remedial ac on process and/or the annual review
should provide the informa on needed to allow the planning team to make the necessary revision(s)to the plan.

14.4 Monitoring by Central Ministries/Depts. and States/UTs
All central ministries, departments and States/UTs should prepare a checklist with veriﬁable indicators
to regularly monitor the progress of the implementa on of respec ve DM plans. The monitoring
system must be aligned with the Sendai framework monitoring checklist (Annexure-III). Keeping the
Sendai framework as a reference, they must develop speciﬁc checklists relevant to various hazards.
The monitoring must include periodic reviews synchronised with the quasi-cyclic or recurring natureof hazards such as cyclone, or ﬂood. They must also regularly review preparedness for disasters that
tend to occur without warnings or are extremely rare such as earthquake or tsunami. For recurring or
frequent hazards, they should employ check lists to assess preparedness before the onset of theseason. For other hazards, this can be undertaken as an annual exercise. Ministries / Departments ofGovernment of India should also conduct periodic review on the extent of ﬁnancial provisions requiredfor implemen ng their Plan.

14.5 Revise/ Update
This step closes the loop in the planning process. It focuses on adding the informa on gained byexercising the plan to the lessons learnt while execu ng and start the planning cycle all over again. All
the relevant stakeholders should establish a process for reviewing and revising the plan. Each DM plan
must be reviewed periodically and updated. It should also be reviewed and updated as indicatedbelow:•••

330

Major review and revisions a er each major incident
A er signiﬁcant change in opera onal resources (e.g., policy, personnel, organiza onal
structures, management processes, facili es, equipment)
Subsequent to any no ﬁca on or formal update of planning guidance or standards

NATIONAL DISASTER MANAGEMENT PLAN

•
•
•
•

A er every case of plan ac va on in an cipa on of an emergency
A er the comple on of major exercises
A change in the district’s demographics or hazard or threat proﬁleEnactment of new or amended laws or ordinances

In excep onal circumstances where the magnitude of the incidence or the situa on demand s/ needs
extra measures to be taken, appropriate authority will make necessary amendments. Various
Ministries, States, and Union Territories will cooperate with the exercise of revising the plan asneeded. As per sec on 11(4) of the DM Act, NDMP is to be reviewed and updated annually.

331

NATIONAL DISASTER MANAGEMENT AUTHORITY

332

NATIONAL DISASTER MANAGEMENT PLAN

References
Bal, S. K., Saha, S., Fand, B. B., Singh, N. P., Rane, J., & Minhas, P. S. (2014). Hailstorms: Causes,
damage and post-hail management in agriculture. Na onal Ins tute of Abio c Stress
Management, Indian Council of Agricultural Researc, Technical Bulle n, (5), 44.
Benson, C., Twigg, J., & Rosse o, T. (2007). Tools for mainstreaming disaster risk reduc on:
Guidance notes for development organisa ons. ProVen on Consor um.
CSO (2016) Elderly in India. Central Sta s cs Oﬃce, MOSPI, Govt. of India, Delhi.
h p://mospi.nic.in/sites/default/ﬁles/publica on_reports/ElderlyinIndia_2016.pdf
DesInventar (2016) h p://www.desinventar.net/deﬁni ons.html (accessed Sep 20, 2019)
FAO (2016) Livestock-related interven ons during emergencies—The how-to-do-it manual. Animal
Produc on and Health Manual No. 18., FAO, Rome.
Fordham, M. (1999) "The Intersec on of Gender and Social Class in Disaster: Balancing Resilienceand Vulnerability." Interna onal Journal of Mass Emergencies and Disasters 17, no. 1 (1999): 15 36.
Fothergill, A (1998). "The Neglect of Gender in Disaster Work: An Overview of the Literature." In: The
Gendered Terrain of Disaster: Through Women's Eyes, edited by Elaine Enarson and Be y Hearn
Morrow, 11-25. Miami, Florida: Laboratory for Social and Behavioral Research, 1998.
GCF (2018) Global Catastrophic Risk Report 2018 h ps://www.humanitarianfutures.org/globalcatastrophic-risk-report-2018/ (accessed Sept. 30, 2019)
GOI (2005) Disaster Management Act 2005
GOI (2009) Na onal Policy on Disaster Management
Goswami, B.N., Venugopal, V., Sengupta, D., Madhusoodanan, M.S. and Xavier, P. K., (2006)
Increasing trend of Extreme Rain Events over India in a Warming Environment , Science, 314,
5804, 1442-1445.
HI (2015) Disability in Humanitarian Context: Views from Aﬀected People and Field Organisa ons,
Handicap Interna onal. h ps://handicapinterna onal.ch/sites/ch/ﬁles/documents/ﬁles/disability-humanitarian-context.pdf (accessed 20
Sep 2019)
IMD (2012) Annual Climate Summary 2012, Na onal Climate Centre, Pune.
IMD (2016) Terminology on Cyclonic disturbances over the North Indian Ocean.
h p://www.rsmcnewdelhi.imd.gov.in/images/pdf/cycloneawareness/terminology/terminology.pdf (accessed 20 Sep 2019)
IPCC (2012) Managing the Risks of Extreme Events and Disasters to Advance Climate Change
Adapta on. A Special Report of Working Groups I and II of the Intergovernmental Panel on
Climate Change, Cambridge University Press, Cambridge, UK, 582 pp.
IPCC (2013) Climate Change 2013: The Physical Science Basis. Contribu on of Working Group I to the
Fi h Assessment Report of the Inter-Governmental Panel on Climate Change, Cambridge
University Press, Cambridge, United Kingdom and New York, NY, USA, 1535 pp.
Kothawale, D.R., Munot A A, Krishna Kumar K, (2010). Surface air temperature variability over India
during 1901-2007, and its associa on with ENSO, Climate Research, 42, June 2010, 89- 104,
doi:10.3354/cr00857 (no journal/ book etc.)
Le Quesne, F., Tollmann, J., Range, M., Balogun, K., Zissener, M., Bohl, D., Souvignet M, Schuster S,
Zwick S, Phillips J, and Wehnert, B. (2017). The role of insurance in integrated disaster & climate
risk management: Evidence and lessons learned.
LEGS (2014) Livestock and Emergency Guidelines Standards, Prelims–Livestock and Emergency
Guidelines (LEGS)–2nd edi on. In Livestock Emergency Guidelines and Standards (LEGS)-2nd
Edi on (pp. i-xvi). Prac cal Ac on Publishing.

333

NATIONAL DISASTER MANAGEMENT AUTHORITY

MA (2005) Millennium Ecosystem Assessment, Ecosystems and Human Well-being: Current Stateand Trends: Findings of the Condi on and Trends Working Group, Island Press: Washington, D.C.
MAFW (2016) Drought Management Manual, Ministry of Agriculture & Farmers Welfare, Govt. of
India
MOEFCC (2010) Climate Change and India: A 4x4 Assessment - A Sectoral and Regional Analysis for2030s, INCCA Report #2, Ministry of Environment, Forests and Climate Change, p 164.
h p://www.moef.nic.in/sites/default/ﬁles/ﬁn -rpt-incca_0.pdf (Retrieved 30-Oct-2017)
Oslo Policy Forum (2008) Changing the Way We Develop: Dealing with Disasters and Climate Change– Report on the ﬁndings of the conference. Oslo and Geneva: Norwegian Ministry for Foreign
Aﬀairs, ProVen on Consor um and the United Na ons Development Programme. Available atwww.oslopolicyforum.no/front.cfm.
Parkinson, D (2011). Gender and Disaster: Literature Review. Wangara a, Australia: W omen's
Health Goulburn North East Inc., 2011.
Pa anaik, D.R. and Rajeevan, M. (2010) Variability of extreme rainfall events over India during
southwest monsoon season. Meteorological Applica ons, 17(1), 88-104.
Rajeevan, M., Bhate, J. and Jaswal, A.K. (2008) Analysis of variability and trends of extreme rainfall
events over India using 104 years of gridded daily rainfall data. Geophysical Research Le ers, 35,
L18707.
Rathore, L. S., A ri, S. D., & Jaswal, A. K. (2013). State level climate change trends in India.
Meteorological Monograph No. ESSO/IMD/EMRC/02/2013, Government of India Ministry of
Earth Sciences, Earth System Science Organisa on, India Meteorological Department, p 156.
Rathore, L.S., A ri, S.D., and Jaswal, A.K. (2013) State Level Climate Change Trends in India,
Meteorological Monograph No. ESSO/IMD/EMRC/02/2013
Satendra and Kaushik, A.D. (2014): Forest Fire Disaster Management. Na onal Ins tute of Disaster
Management, Ministry of Home Aﬀairs, New Delhi.
Sen Roy, S., (2009) A spa al analysis of extreme hourly precipita on pa erns in India. Interna onal
Journal of Climatology, 29(3), 345-355.
Singh, S.K. and Gupta, R.K. (2017) Monitoring of Glacial Lakes & Water Bodies in the Himalayan
Region of Indian River Basins for 2016, CWC/CC&IAD/2016/TR 6. URL:h p://www.cwc.gov.in/main/downloads/CWC_lakes_monitor_report_2016.pdf (accessed Sep
20, 2019)
Tierney, K. (2012), Disaster governance: Social, political, and economic dimensions. Annual Review ofEnvironment and Resources, 37, pp.341-363.
Turnbull, M., Sterre , C.L. and Hilleboe, A. (2013) Toward Resilience: A Guide to Disaster Risk
Reduc on and Climate Change Adapta on (www.ecbproject.org), Prac cal Ac on Publishing Ltd.,
Warwickshire.
UN (1989) Conven on on the Rights of the Child h ps://www.unicef.org/crc/ (accessed Sep 20,
2019)
UN (2015) Transforming our world: the 2030 Agenda for Sustainable Development, General
Assembly, Resolu on 70/1.
h ps://sustainabledevelopment.un.org/post2015/transformin gourworld (accessed Sep 20, 2019)
UNDESA (2008) Prac cal Strategies to Promote Social Integra on. Paris, France, 10 -13 September
2007 Final Report of the Expert Group Mee ng on "Crea ng an Inclusive Society: Prac cal
strategies to promote social inclusion"
UNDP (2004), Reducing Disaster Risk - A Challenge for Development, United Na ons Development
Programme, New York.
UNDP (2012) Pu ng Resilience at the Heart of Development - Inves ng in Preven on and Resilient
Recovery
UNDP (2013) Disaster risk Governance: Issue Brief. UNDP. New York.
UNDP (2015) Strengthening Disaster Risk Governance: UNDP Support during the HFA
Implementa on Period 2005-2015, New York.

334

NATIONAL DISASTER MANAGEMENT PLAN

UNFCC (2015) Paris Agreement, FCCC/CP/2015/10/Add.1
h ps://unfccc.int/process-and-mee ngs/conferences/past-conferences/paris-climate-changeconference-november-2015/cop-21/cop-21-decisions
UNISDR (2014) Charter 14 for Older People in Disaster Risk Reduc on.
h ps://www.unisdr.org/we/inform/publica ons/4 0218 (accessed Sep 20, 2019)
UNISDR (2015a), Sendai Framework for Disaster Risk Reduc on 2015-2030.
h p://www.unisdr.org/we/inform/publica ons/43291 (accessed Sep 20, 2019)
UNISDR (2015b) Global Assessment Report 2015.
h ps://www.unisdr.org/we/inform/publica ons/42809 (accessed Sep 20, 2019)
UNISDR (2016) Report of the open-ended intergovernmental expert working group on indicators andterminology rela ng to disaster risk reduc on.
h ps://www.unisdr.org/we/inform/publica ons/51748 (accessed Sep. 20, 2019)
UNISDR (2017) Build Back Be er in Recovery, Rehabilita on and Reconstruc on: Consulta ve
Version
WCDRR (2015) Mobilizing Women's Leadership in Disaster Risk Reduc on, Third United Na ons
World Conference on Disaster Risk Reduc on (3WCDRR), Sendai, Japan, 14 -18 March 2015
World Bank Group (2012), Turn Down the Heat: Why a 4oC warmer world must be avoided.

335

NATIONAL DISASTER MANAGEMENT AUTHORITY

336

NATIONAL DISASTER MANAGEMENT PLAN

Annexure-I: List of NDMA’s Disaster Management
Guidelines
Source: h p://ndma.gov.in/en/ndma-guidelines.html (as on Sep. 30, 2019)
1. Biological Disasters (Guidelines on Management of)
2. Boat Safety (Guidelines on)
3. Chemical Disasters (Guidelines on)
4. Chemical (Terrorism) Disasters (Guidelines on Management of)
5. Cultural Heritage Sites and Precincts (Guidelines on)
6. Cyclones (Guidelines on Management of)
7. Dead in the A ermath of Disaster (Guidelines on Management of)
8. Disability Inclusive Disaster Risk Reduc on (Na onal Disaster Management Guidelines on)
9. Drought (Guidelines on Management of)
10. Earthquakes (Guidelines on Management of)
11. Fire Services (Guidelines on Scaling, Type of Equipment and Training of)
12. Floods (Guidelines on Management of)
13. Heatwave (Guidelines for Prepara on of Ac on Plan – Preven on and Management of)
14. Hospital Safety (Guidelines on)
15. Incident Response System (Guidelines on)
16. Landslides and Snow Avalanches (Guidelines on Management of)
17. Medical Preparedness and Mass Casualty Management (Guidelines on)
18. Museums (Guidelines on)
19. Na onal Disaster Management Informa on and Communica on System (Guidelines on)
20. Nuclear and Radiological Emergencies (Guidelines on Management of)
21. Psycho-Social Support and Mental Health Services in Disasters (Guidelines on)
22. Relief (Guidelines on Minimum Standards of)
23. School Safety Policy (Guidelines on)
24. Seismic Retroﬁ ng of Deﬁcient Buildings and Structures (Guidelines on)
25. State Disaster Management Plans (Guidelines on Prepara on of)
26. Temporary Shelters for Disaster -Aﬀected Families (Na onal Guidelines on)
27. Thunderstorm & Lightning/Squall/Dust/Hailstorm & Strong Winds (Guidelines on Preven on &Management of)
28. Tsunamis (Guidelines on Management of)
29. Urban Flooding (Guidelines on Management of)337

NATIONAL DISASTER MANAGEMENT AUTHORITY

338

NATIONAL DISASTER MANAGEMENT PLAN

Annexure-II: Hazard Risk Maps for India
Vulnerability Atlas of India, Third Edi on 2019 , Building Materials and Technology Promo on Council(BMTPC)h p://www.bmtpc.org/DataFiles/CMS/ﬁle/VAI2019/Index.html (accessed Oct 15, 2019)339

NATIONAL DISASTER MANAGEMENT AUTHORITY

Earthquake Hazard Map(h p://www.bmtpc.org/DataFiles/CMS/ﬁle/VAI2019/eq.html , accessed Oct 15, 2019)340

NATIONAL DISASTER MANAGEMENT PLAN

Wind Hazard Map(h p://www.bmtpc.org/DataFiles/CMS/ﬁle/VAI2019/wind.html , accessed Oct 15, 2019)

341

NATIONAL DISASTER MANAGEMENT AUTHORITY

Flood Hazard Map(h p://www.bmtpc.org/DataFiles/CMS/ﬁle/VAI2019/ﬂood.html , accessed Oct 15, 2019)

342

NATIONAL DISASTER MANAGEMENT PLAN

Landslide Incidence Map(h p://www.bmtpc.org/DataFiles/CMS/ﬁle/VAI2019/landslide.html , accessed Oct 15, 2019)

343

NATIONAL DISASTER MANAGEMENT AUTHORITY

Thunderstorm Incidence Map(h p://www.bmtpc.org/DataFiles/CMS/ﬁle/VAI2019/th.html , accessed Oct 15, 2019)344

NATIONAL DISASTER MANAGEMENT PLAN

Annexure-III: Sendai Framework Indicators
A set of 38 indicators was iden ﬁed to measure global progress in the implementa on of the Sendai
Framework for Disaster Risk Reduc on. The indicators will measure progress in achieving the global
targets of the Sendai Framework, and determine global trends in the reduc on of risk and losses.
Global target A: Substan ally reduce global disaster mortality by 2030, aiming to lower averageper 100,000 global mortality between 2020-2030 compared with 2005-2015.
A-1(compound)
A-2
A-3

Number of deaths and missing persons a ributed to disasters, per100,000 popula on.
Number of deaths a ributed to disasters, per 100,000 popula on.
Number of missing persons a ributed to disasters, per 100,000
popula on.
The scope of disaster in this and subsequent targets is deﬁned inparagraph 15 of the Sendai Framework for Disaster Risk Reduc on 2015 2030 and applies to small-scale and large-scale, frequent and infrequent,sudden and slow-onset disasters caused by natural or man-madehazards, as well as related environmental, technological and biologicalhazards and risk.

Global target B: Substan ally reduce the number of aﬀected people globally by 2030, aiming tolower the average global ﬁgure per 100,000 between 2020-2030 compared with 2005-2015.
B-1(compound)
B-2
B-3
B-4
B-5

Number of directly aﬀected people a ributed to disasters, per 100,000
popula on.
Number of injured or ill people a ributed to disasters, per 100,000
popula on.
Number of people whose damaged dwellings were a ributed todisasters.
Number of people whose destroyed dwellings were a ributed todisasters.
Number of people whose livelihoods were disrupted or destroyed,
a ributed to disasters.

Global target C: Reduce direct disaster economic loss in rela on to global gross domes c product(GDP) by 2030.
C-1(compound)
C-2

C-3

Direct economic loss a ributed to disasters in rela on to global grossdomes c product.
Direct agricultural loss a ributed to disasters.
Agriculture is understood to include the crops, livestock, ﬁsheries,
apiculture, aquaculture and forest sectors as well as associated facili es
and infrastructure.
Direct economic loss to all other damaged or destroyed produc ve
assets a ributed to disasters.

345

NATIONAL DISASTER MANAGEMENT AUTHORITY

Produc ve assets would be disaggregated by economic sector, including
services, according to standard interna onal classiﬁca ons. Countries
would report against those economic sectors relevant to theireconomies. This would be described in the associated metadata.
C-4
Direct economic loss in the housing sector a ributed to disasters.
Data would be disaggregated according to damaged and destroyed
dwellings.
C-5
Direct economic loss resul ng from damaged or destroyed cri cal
infrastructure a ributed to disasters.
The decision regarding those elements of cri cal infrastructure to be
included in the calcula on will be le to the Member States anddescribed in the accompanying metadata. Protec ve infrastructure andgreen infrastructure should be included where relevant.
C-6
Direct economic loss to cultural heritage damaged or destroyed
a ributed to disasters.
Global target D: Substan ally reduce disaster damage to cri cal infrastructure and disrup on ofbasic services, among them health and educa onal facili es, including through developing theirresilience by 2030
D-1
Damage to cri cal infrastructure a ributed to disasters.
(compound)D-2
Number of destroyed or damaged health facili es a ributed todisasters.
D-3
Number of destroyed or damaged educa onal facili es a ributed todisasters.
D-4
Number of other destroyed or damaged cri cal infrastructure units andfacili es a ributed to disasters.
The decision regarding those elements of cri cal infrastructure to be
included in the calcula on will be le to the Member States anddescribed in the accompanying metadata. Protec ve infrastructure andgreen infrastructure should be included where relevant.
D-5
Number of disrup ons to basic services a ributed to disasters.
(compound)D-6
Number of disrup ons to educa onal services a ributed to disasters.
D-7
Number of disrup ons to health services a ributed to disasters.
D-8
Number of disrup ons to other basic services a ributed to disasters.
The decision regarding those elements of basic services to be included in
the calcula on will be le to the Member States and described in theaccompanying metadata.
Global target E: Substan ally increase the number of countries with na onal and local disaster risk
reduc on strategies by 2020.
E-1
Number of countries that adopt and implement na onal disaster risk
reduc on strategies in line with the Sendai Framework for Disaster Risk
Reduc on 2015-2030.
E-2
Percentage of local governments that adopt and implement local disasterrisk reduc on strategies in line with na onal strategies.
Informa on should be provided on the appropriate levels of government
below the na onal level with responsibility for disaster risk reduc on.

346

NATIONAL DISASTER MANAGEMENT PLAN

Global target F: Substan ally enhance interna onal coopera on to developing countries throughadequate and sustainable support to complement their na onal ac ons for implementa on ofthis framework by 2030.
F-1
Total oﬃcial interna onal support, (oﬃcial development assistance(ODA) plus other oﬃcial ﬂows), for na onal disaster risk reduc on
ac ons.
Repor ng of the provision or receipt of interna onal coopera on fordisaster risk reduc on shall be done in accordance with the modali es
applied in respec ve countries. Recipient countries are encouraged toprovide informa on on the es mated amount of na onal disaster risk
reduc on expenditure.
F-2
Total oﬃcial interna onal support (ODA plus other oﬃcial ﬂ ows) for
na onal disaster risk reduc on ac ons provided by mul lateralagencies.
F-3
Total oﬃcial interna onal support (ODA plus other oﬃcial ﬂows) for
na onal disaster risk reduc on ac ons provided bilaterally.
F-4
Total oﬃcial interna onal support (ODA plus other oﬃcial ﬂows) for thetransfer and exchange of disaster risk reduc on -related technology.
F-5
Number of interna onal, regional and bilateral programmes andini a ves for the transfer and exchange of science, tec hnology andinnova on in disaster risk reduc on for developing countries.
F-6
Total oﬃcial interna onal support (ODA plus other oﬃcial ﬂows) for
disaster risk reduc on capacity-building.
F-7
Number of interna onal, regional and bilateral programmes andini a ves for disaster risk reduc on-related capacity-building indeveloping countries.
F-8
Number of developing countries supported by interna onal, regionaland bilateral ini a ves to strengthen their disaster risk reduc onrelated sta s cal capacity.
Global target G: Substan ally increase the availability of and access to mul -hazard early warning
systems and disaster risk informa on and assessments to the people by 2030.
G-1
Number of countries that have mul -hazard early warning systems.
(compound G2-G5)
G-2
Number of countries that have mul -hazard monitoring and forecas ng
systems.
G-3
Number of people per 100,000 that are covered by early warning
informa on through local governments or through na onal
dissemina on mechanisms.
G-4
Percentage of local governments having a plan to act on early warnings.
G-5
Number of countries that have accessible, understandable, usable andrelevant disaster risk informa on and assessment available to thepeople at the na onal and local levels.
G-6
Percentage of popula on exposed to or at risk from disasters protected
through pre-emp ve evacua on following early warning.
Member States in a posi on to do so are encouraged to provide
informa on on the number of evacuated people.
Source: h ps://www.preven onweb.net/sendai -framework/sendai-framework-monitor/indicators

347

NATIONAL DISASTER MANAGEMENT AUTHORITY

348

Designed & Printed by:
MITTAL ENTERPRISES, Delhi # 9811340726