Disclaimer
This report was compiled by an ADRC visiting researcher (VR) from ADRC
member countries.
The views expressed in the report do not necessarily reflect the views of theADRC. The boundaries and names shown and the designations used on themaps in the report also do not imply official endorsement or acceptance by
the ADRC.

ADRC Visiting Researcher Program 2014A

Country Profile: Nepal

Disaster Management Institution and System in Nepal

Pradip Kumar Koirala
ADRC Visiting Researcher, 2014A(From Ministry of Home Affairs, Nepal)

September 2014

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1.

Background, in the light of Disaster

Nepal is in a threat of multiple natural hazards. Flood, landslide and fire are frequent occurrence
disasters and the country is prone to earthquake, being at a ridge of Tibetian and Indial Plates
colliding each-other along with the Himalayan Region. The recent date has shown that thethunderstorm and the epidemics are becoming those disasters, which are killing the higher number ofpeople in the recent days. The country has remained at the top 20th list of the most multi-hazard prone
countries in the world. The country is ranked 4th, 11th and 30th in term of climate change, earthquake
and flood risk respectively. Other disasters in Nepal are drought, storm, hailstorm, avalanches,
cold-waves, forest fires and GLOF. Nepal poses in an average two death per disaster and one disasterper day. According to the DisInventar data, more than 30,000 people are killed by anyone of thedisaster, leaving more then 60,000 people injured; that has created huge loss of human lives andproperty.
Government of Nepal has promulgated various laws and policies, including Natural Calamity (Relief)
Act, 1982 and National Strategy on Disaster Risk Management (NSDRM), 2009. The act has
provisioned a Committee being chaired by the Minister of Home Affairs at the central level, Regional
Natural Disaster Relief Committee at regional level and District Natural Disaster Relief Committee at
district level. Ministry of Home Affairs is working as a nodal agency of disaster risk management,
both at National and International level for Nepal. Along with the Act, Government adopted National
Strategy for Disaster Risk Management (NSDRM), 2009 based on Hyogo Framework for Action andthis new strategy encompasses prevention, mitigation, preparedness, response and recovery. This
strategy has allocated the clear role of different Ministries for different phases of disaster. Disaster
Risk Reduction and Climate Change Adaptation have become national priority and being
institutionalized to support sustainable development in Nepal through the harmonization andmainstreaming process. The current thirteenth Five Year Plan (2013/14-2015/16) has emphasized thedisaster risk management issues as an inherited character of sustainable development and has
accorded priority to pre-disaster preparedness to recovery process.
Ministry of Home Affairs has established a National Emergency Operation Centre (NEOC) at national
level on December 2010 and the ministry has established the emergency centers at 36 districts up todate with the planning to expand it in all districts within next three years. The Ministry of Home
Affairs with support from different development partners has prepared country level Multi-Hazard
Risk Assessment, targeting the better prepared, response and recovery activities with the proper
knowledge of possible hazardous situation at district and at local level. The different hazards included
the assessment are earthquake, flood, fire, drought, landslides and epidemic. Government has alreadyendorsed the Search and Rescue Strategic Action Plan and is in the process of approval to the Early
Warning Strategic Action Plan. A National Platform for DRR has been formulated as a loose network,
led by Ministry of Home Affairs. The government has established disaster risk management focal

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desk and appointed officials in different Ministries and Departments to make effective the disasterrisk reduction process both at national and local level. Some more initiations are in place both fromgovernment and non-government level, which expedite the process of managing the disasters.
1.1

Nepal Specific

Nepal is a landlocked country which borders India to the east, west and south, and to the north with
China. Central part and north parts are hilly area with the Himalayas ranges, whereas southern part iscovered with the Plain area called ‘Tarai’. The total Land area of Nepal is 147,000 square kilometers,
where as the population density is 26.6 million, 12.84 million is male and 13.64 million are female,with total household size 542 thousand. The population comprises of different ethnicities, races andlanguage, being 81.34 percent Hindu, 9.04 Buddha, 4.39 percent Islam, 3.05 percent Kirat and 1.42
percent Christian. Nepal has all six seasons, the famous rainy season is in June to August and thewinter is between December to February. The capital city of Nepal is Kathmandu, where only thecapital about 3 million peoples are living. It covers a landmass area of 147,181sq km. It spreads 145
to 241 Kilometers from north to south and 885 kilometers from east to west. It is located in South
Asia occupied only 0.01 percent of the total landmass of the Earth. (all the data has been derived from
National Population Census, 2011)
1.2

Geography

Nepal is characterized by rugged topography, variable climatic conditions, complex geologicalstructure with active tectonic process and continued seismic activities. The rise and the fall of thecountry lies from 60 meter in plane area to 8,848 meter at Mount Everest in the north within a shorthorizontal distance of 145 to 241 kilometers. The sharp vertical landscape renders the country highly
vulnerable to potential water induced disasters like landslide, slope failure, soil erosion and debris
flow. Such short descending order of the land provided the water current very fast, creating thepossibility of heavy erosion of the soil from mountain. Nepal is divided into five physiographic
regions which are almost parallel to each other, running from west to east. They are categoricallyrecognized as high Himalayan region, high mountain, middle mountain, Siwaliks (land in between
plane and mountain) and Terai (plane area). However, in common phrasing, Himalaya, mountain hills
and Tarai is generally used, respectively covering 15%, 68% and 17% of the total land area.
1.3

Administrative Division

Nepal was declared a federal republic in 2008, through the promulgation of the new interim
constitutions. The country is still in the process of creating a new federal republic constitution andconcluding the peace process. Up to date, for development and management purposes, Nepal isadministratively divided into 5 Development Regions, 14 Zones, and 75 Districts. Due to migration
trend and development of infrastructure, the urbanization trend is increasing, the number ofmunicipalities has increased to 130 in 2014, previously it was 58 decreasing the numbers VDCs to

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3,633 across the country, down from 3,915 VDCs.
1.4

Demography

The country has approximately 26.6 million populations with annual growth rate of 1.4 percent
average (Population Census 2011). Nepal is the 41st most populous, 93rd largest country by landmass
and 115th largest economy of the world. It has diversity with several race, caste, tribes, rituals,
ethnicity, religion and languages. That means Nepal is multilingual, multicultural, multi-religious, andmultiethnic society. Nepal is diverse linguistic heritage evolved from four major languages groups –Indo Aryan, Tibeto Barmen, Mongolian, and Indigenous language isolates. Nepal is a combination of
102 ethnic, 92 linguistic and 6 religious people living with the social harmony and unity. The
Nepalese population consists of indo Aryan and Mongol races. Religiously, the overwhelming
populations are Hindus (80.6%) followed by Buddhist (10.7%), Islam (4.2%), Kirat (3.6%), Christians(0.5%) and the others (0.4%). In March 2008 Nepal is declared as a secular state.
1.5

Socio-economic formation

Nepal’s life expectancy at birth has reached to 69.1 at 2013 from 60.8 at 2001. (Environment
Statistics of Nepal, 2013 by CBS, Nepal) Adult literacy rate (15-24 years) is 86.5% (CBS, 2009).
Some other social indicators like net enrolment rate in primary education is 93.7% (DOE, 2009),
population below poverty line is 25.2% (CBS, 2011), human development index of Nepal is 0.458(UNDP, 2011). Annual GDP growth rate of Nepal is estimated 3.6%percent in 2012 (Economic
Survey 2012-13, MoF) while the inflation rate is 13%. Total GDP for the year 2012 is estimated to be
US $17.92 billion with the primary sector like agriculture, forest and fishery contribute around 37%,
secondary sectors contributing around 14% and Tertiary sector/service sector contributing around 51
per cent of the total GDP (Economic Survey 2012-13). Nepal's economy is based on primary sectors,
although only about 20% of the total area is cultivable; another 33% is forested; most of the rest is
mountainous. Nepal was ranked 54th worst of 81 ranked countries (those with GHI > 5.0) on the
Global Hunger Index in 2011. Nepal's current score of 19.9 is better than in 2010 (20.0) and much
improved than its score of 27.5 in 1990. GDP per capita in current price estimated for 2012 is US$743 (Global Finance). 86% of the total foreign trade comprises of imports and remaining 14% areexports, which results huge trade deficit in the economy (Economic Survey 2012-13).
1.6

ClimateClimatic condition varies in Nepal within a short distance primarily due to its variation in altitude anddifferent type of topography, along with the distances of it's corners. The variety in climate has createdcontrasting habitats, vegetation, flora and fauna. The average annual rainfall is about 1,600 mm (meanannual precipitation varies from more than 4,000 mm along the southern slopes of the Annapurna
Himalayan range to less than 250 mm in the rain-shadow areas near Tibetan plateau, about 80% of
which falls between June to September in the form of summer monsoon. The rainfall is much higher

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in east part of Nepal then the west part, but the sudden and heavy rainfall can be experienced in thewest part.
Nepal has five climatic condition/zones from subtropical to arctic broadly corresponding to thealtitudes. The tropical and subtropical zone lies below 1,200 meters, the temperate zone 1,200 to
2,400 meters, the cold zone 2,400 to 3,600 meters, the subarctic zone 3,600 to 4,000 meters, and thearctic zone above 4,400 meters. Nepal has four major seasons comprises winter (December-February),
spring (March-May), summer (June-August), autumn (September-November). The Terai and the
Siwalik ranges poses sub-tropical climate and the northern mountainous regions have cold, dry
continental and alpine winter climate. Summer and late spring temperatures range from about 280 C in
the hilly region to more than 400 C in the Terai. In winter, average maximum and minimum
temperatures in the Terai range from a brisk 70 C to a mild 230 C respectively. The central valleys
experience a minimum temperature often falling below the freezing point. Much colder temperatures
prevail at higher elevations.
2. Disaster Profiles in Nepal
The fragile geology and steep topography has made Nepal the 20th topmost disaster prone country in
the world. Among 200 countries, Nepal ranks 4th, 11th and 30th with regard to relative vulnerability
to climate change, earthquake and flood hazards respectively. It faces high magnitudes and intensities
of a multitude of natural hazards such as flood, landslide, earthquake, fire, cold waves, hailstone,
windstorm, thunderbolt, cloudburst, drought, Glacier Lake Outburst Flood (GLOF), avalanches andepidemics. Unstable steep slopes and fragile geological formation of a young mountain range withheavy monsoon rainfall leads to a wide range of geological and hydro-meteorological disasters acrossthe country. The variation in geological characteristics, together with torrential rain during rainyseason, result in landslides, debris flows, floods, etc.
Apart from these, several other human-induced disasters are reported in the country, Nepal is affectedby many natural hazards. The recent data shows that the frequency of natural disasters such as floods,
landslides and fire have increased, especially during past three decades and could be attributed touncontrolled development, environmental degradation or human interventions. Evidence hassuggested that the human interventions can increase or decrease the frequency or severity of certain
types of hazards such as landslides, floods, drought, etc. or cause hazards that were not previously
experienced. With the ever increasing growth of population, safe land is in scarce and there is agreater tendency for people to occupy marginal lands thereby increasing their susceptibility tohazards.
In this context, managing disasters in this current period requires a concerted as well as an integrated
national effort which needs to be coordinated at all levels. The Government of Nepal has been

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working to reduce risks through mainstreaming disaster management into sectoral development for
preventing the occurrence of disasters, mitigating their impact and ensuring that there is adequate
preparedness to ensure an effective response. Historical records show that Nepal has been sufferingfrom various types of disaster. The entire country is prone to earthquake as well. While the hilly areas,
with rough topography and very young geology, are very prone to landslides, the lowland Terai isprone to floods. Avalanches, GLOFs and snowstorms are common in high hills of Nepal. The biggest
recorded disasters in Nepal are the earthquakes of 1934 and 1988 and the floods of 1993, 2008 and2012 in addition to the Jajarkot diarrhea outbreak of 2009. The avalanches have been experienced in2012, where huge flood triggered by avalanches kill around 72 people in one time.
The earthquake of 1934 put the country in shocks. The Geological, ecological, demographic andhydro-meteorological phenomena, such as rapid population growth and increasing population density,
high degree of environmental degradation particularly deforestation, fragility of landmass, wider
spread poverty, topography which poses huge infrastructural challenge, poor building practices and noenforcement of building codes and unplanned city development, insufficient emergency preparedness
and lack of awareness, and political instability and various form of societal misinterpretations aremajor contributor factors to disaster vulnerability in Nepal. Disaster risk and vulnerability has
increased due to security issues and decreased livelihood opportunities, migration, displacement,
limited access to and weak flow of information to the population displaced internally due to more thana decade-long conflict in the country as well.
2.1

Disaster scenario

Disaster scenario in Nepal Loss of lives by major types of disasters in Nepal from 1971 to 2011
Event

Data
Cards

Deaths Injured

Missing

HousesHousesDestroyed Damaged

Affected

Accident

1314

1280

491

202

5

473

2509

Avalanche

104

234

99

45

32

33

1298

Biological

18

0

0

0

0

0

0

Boat capsize

146

284

154

541

0

0

410

Cold wave

458

595

83

0

0

0

2393

Drought

161

0

0

0

0

0

1625

Earthquake

212

882

7024

0

34810

57004

39596

Epidemic

3452

16566

43076

0

0

0

514535

Explosion

46

34

91

0

4

1

19

Famine

28

10

0

0

0

0

589957

Fire

5264

1328

1200

186

72367

1932

264114

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Flood

3520

3329

523

663

95944

89934

3935933

Forest fire

187

65

45

410

1835

2

16392

Frost

1

0

0

0

2

0

5

Hail storm

725

65

100

2

208

1635

210963Heat wave

46

42

20

0

0

0

381

Landslide

2908

4476

1589

626

18491

33960

574020

Leak

1

0

0

0

1

0

0

Liquefaction

1

0

0

0

1

2

16

Other

97

77

64

11

68

0

11982

Panic

6

89

121

0

0

0

0

Plague

326

11

0

0

0

0

50

Pollution

12

0

0

0

0

0

1000

Rains

243

88

44

3

740

1858

66921

Sedimentation 1

0

0

0

0

0

0

Snow storm

195

88

44

828

102

59

12950

Storm

123

52

283

2

1022

566

2397

Strong wind

456

171

480

0

2013

7443

38815

Struct.collapse 425

414

643

8

1282

623

2671

Thunderstorm 1175

1091

2111

1

328

465

8447

(Source: DisInventar, 2012, data from 1971 to 2011)
2.2

Landslide and Debris flow

The movement of earth, rock or debris down slope under the influence of gravity by certain processes
is considered as a landslide. Landslide usually occurs as secondary effects of heavy rainfall andearthquakes. In so many cases, the landslide has occurred in Napal even if there is small amount of
rainfall, but it was continuous for weeks. After finishing the landslide, the higher level of sunshining
has usually triggered the landslide. A debris flow is slurry of soils, rocks and organic matter combinedwith air and water. The causes of landslide in Nepal are natural as well as manmade. In general the
middle hills are prone to landslides. The natural phenomena like heavy rainfall, active geotectonic
movements, deforestation and disturbance of hill slopes are also the major causes for occurring
landslides. Even in August 5, 2014, the mass landslide occurs in the Sindupalchok District, claiming
Sunkoshi River Blocked and taking life of 156 people, making it the deadliest to hit the Himalayan
nation in three decades. The landslide has also created a dangerous blockage of the Sunkoshi River,stoking fears of floods downstream in neighboring India's Bihar state, where the river is known as

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Kosi. The landslide also damaged part of the Arniko Highway linking Kathmandu with the Tibetan
capital Lhasa, stranding more than 500 foreign hikers and their guides. These types of phenomenon
are common in Nepal, seeking special attraction from stakeholders.
2.3

Floods

The topographical feature of Nepal is mainly responsible for flood. Flood is caused by heavy
precipitation which may occur at any places except high Himalayan region during the monsoon
season. Inundation along the river banks and erosion of land along the riverbanks causes loss bydamaging irrigation and communications facilities and fertile lands across or adjacent to theriverbanks. Such phenomenon’s have caused loss of lives and property in mountainous areas of Nepal
and have posed severe hazards to physical infrastructure like roads and bridges. Inundations havedisrupted social and economic development of many parts of terrain region in the country. The floodsof August 2008 in Koshi river, September 2008 in Western Nepal and July and August 1993 in the
Bagmati and other rivers were the most devastating floods in Nepal. Nepal has observed monsoon
flood as well as flash flood. Rainfall variability (unequal rainfall in time and space), topography (steep
mountain and flat Tarai), deforestation (decreasing vegetative cover) are the major factors
contributing to the floods in Nepal.
2.4

Earthquake

The Nepalese people are living in a country of highest seismic hazard, have faced the consequences ofmany earthquakes including those of great earthquakes. 45 million years ago, the Indian continentcollided into Southern Tibet. The Indian continent is driven under Tibet, pushing lightweight
sediments upwards and thus the formation of the Himalayas. Nepal lies across the boundary between
India and southern Tibet which are still moving towards each other by 2 meters per century. This
movement creates pressure within the Earth, which builds up and can only be released throughearthquakes. This is the only way earthquakes can happen in Nepal. Earthquakes happen very often in
Nepal. Based on the seismic record of the number of earthquakes that occurred since 1255,
earthquakes of magnitude greater than 8 occurred on average once every 80 years. The last greatearthquake of magnitude 8.3 occurred in 1934. The seismic record of Nepal is available since 1255
AD in which 7.7 richter scale in Kathmandu valley king Avaya Malla and one third of population losttheir lives in this event. After that, a series of earthquake occurred in Nepal. Major ones are in 1260,
1408, 1681, 1767, 1810, 1823, 1833, 1834, 1866, 1934, 1980 and 1988 AD. According to theseismological center of Nepal medium and small size earthquake event occur in a different part of
Nepal frequently. According to Global Earthquake Safety Initiative, Kathmandu is exposed to thegreatest earthquake risk per capita among 21 megacities around the world, largely due to building
collapse and insufficient preparedness and insufficiency of medical care. If an earthquake of the 1934
magnitude is reported at this point of time, an estimated 40,000 death, 90,000 injured and 600,000 to
900,000 homeless can be expected.

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2.5

Fire

Fire is a recurring disaster in Nepal. During the dry season from February to May, large numbers ofincident of fire are reported, mostly in the Terai where about three quarter of houses are built withthatched roofs. Forest fires occur throughout Nepal and result deforestation of around 1.7% of thetotal forest area annually. These fires cause economic losses and environmental degradation throwing
dedicates ecosystems out of balance. It is also threatening valuable and endangered flora and fauna,degrading the soil and inducing flood and landslide. Most of the fire incidents are caused by
negligence of the people. Hunting practices, negligence by cigarette smoker, intentional fire toaccelerate growth of grasses to feed livestock, intentional fire setting by herb and charcoal collectors
and children playing with fires are some of the reasons for forest fires. Certain type of trees especially
Sal (shores Robusta) is particularly susceptible to fire. About 86% of the population of the country
inhabit in the rural areas mainly in thatched houses closely clustered where fire hazards are likely to
be common.
2.6

Glacial Lake Outburst Flood (GLOF)

Glacial lakes are like natural water reservoirs dammed by ice or moraines. Lake outburst can betriggered by several factors: ice or rock avalanches, the collapse of the moraine dam due to themelting of ice buried within, the washing out of fine material by springs flowing through the (piping)earthquakes or sudden inputs of water into the lake e.g. through heavy rains or drainage from lakes
further up glacier. ICIMODs 2001 inventory of glaciers, glacial lakes and GLOFs counted 3,252
glaciers and 2,323 glaciers lakes in Nepal 20 of which are very vulnerable to flooding (MoHA, 2009).
GLOF affects high Himalayan region as well as downstream by extremely damages of lives andproperties. Major events shown in past were Tamor Koshi (1980), Sun Kosi (1935, 1981), Dudh Kosi
(1977, 1985), Arun (1968, 1969, 1970), etc.
2.7

Drought

In Nepal, most of the country is in the grip of drought-like condition from the end of March till the
monsoon arrives next in June, but the districts like Manang and Mustang in the Trans-Himalayan
region are extremely dry throughout the year and the Terai and western hills are more frequently
affected than other regions. Drought results in crop failures and famine, both during the monsoon
season and rest of the year, when winter crops are sown. About 5,000 families living in pockets in thehills and Terai are badly affected by drought each year (MoHA, 2009). Planned land use with crop
rotation, rain water harvesting, drought monitoring, using recycle water, developing irrigation system,
water rationing are some of the strategy which help to minimize impact of drought.
2.8

OthersAlthough about 300 people has died in June and July month of 2009 in Midwestern part of theSep 2014

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country, this year there is no severe case of diarrhea, but it is likely to recurs again in anytime in the
monsoon season, as the country is always in the threat of the epidemic of diarrhea. Some other kind ofdisasters are drought, hailstone, thunderbolt, avalanche, boat capsize, structure collapse, cold wave,
hot wave, swine flu, bird flu, encephalitis, meningitis is common during hot and rainy season. The
lightening and hailstorm are other natural disaster. The date at 2012 (MOHA, 2012) has shown the
different figure that there are about 200 people has been killed by lightening only, the trend isincreasing as well. The sudden avalanche and heavy snow fall in winter season sometimes cause
heavy loss of human lives and properties. Road accident and aircraft accidents are also major sourceof disaster in Nepal. In Nepal, road accidents are one of the top ten causes of death. Aircraft accidents
are more common in hilly terrain and areas with extreme climatic condition. But the road accident andaircraft accident has been dealt by other government agencies, treating them as an accident, not thedisaster one.
A scenario of past disastrous events during 1980-2012 reveals that epidemics, landslide and floods
takes the largest toll of life every year, and urban or rural fire are the principle hazards in terms of
their extent and frequency of occurrence as well as the spread and intensity of physical andsocio-economic impacts. Earthquake is a major potential hazard to reckon with - the country is
located on an active seismic belt and the exponential urbanization trend over the past decade withgeneral disregard of earthquake-resistant measures in building construction is the cause ofever-increasing earthquake risk.
3.

Legal and Institutional Arrangements

3.1

Natural Calamity (Relief) Act, 1982

Natural Calamity Relief Act (NCRA), 1982 is a milestone legal instrument for disaster managementin Nepal. The act was formulated twice in 1982 and amended in 1989 and 1992 accordingly. The Act
has envisaged the natural disaster as earthquake, fire, storm, flood, landslide, heavy rain, drought,
famine, epidemic, and other similar natural disaster. The Act also includes industrial accident or
accidents caused by the explosions or any other kinds of disaster. Similarly, the Act defines natural
disaster relief work as “any relief work carried out in the area affected or likely to be affected by thenatural disaster in order to remove the grief and inconvenience caused to the people, to rehabilitate thevictims of the natural disaster, to protect the public property and life and property of the people, tocontrol and prevent the natural disaster and to make advance preparation thereof”. According to theAct, the provision has been made to set up different institutions from centre to local level to arrange
relief and rescue works during the emergency. There has been a provision of Central Natural Disaster
Relief Committee (CNDRC) with Relief and Treatment sub-committee and Supply, Shelter andRehabilitation sub- committee at the centre level as an apex body of disaster management in Nepal.
There is also provision of a Regional Natural Disaster Relief Committee (RDRC), District NaturalSep 2014

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Disaster Relief Committee (DDRC) and Local Natural Disaster Relief Committee (LDRC). Among
those institutions CNDRC and DDRC are very much active all the time, but two subcommittees and
RDRC and LDRC could not be functioning as per the stipulated manner. The Act also empowers thegovernment to the state of emergency during the intensive disaster. It also furnishes some special
rights to the disaster manager for managing rescue and relief work in an effective and efficientmanner. It also empowers the government to allocate for dedicated fund at central to local level as a
Disaster Relief Fund for delivering effective relief and rescue during the disaster.
3.2

Local Self Governance Act, 1999

The Local Self Governance Act (LSGA) 1999 empowers local bodies to govern themselves andrecognizes that local people and local bodies are the most appropriate points of entry to meetdevelopment needs at the local level. The LSGA authorizes to undertake certain functions withrespect to DRR by local bodies. Some provisions have been made to establish Environment Protection
Fund and Disaster Management Fund at DDCs, VDCs and municipalities. Control of naturalcalamities, prevention of infectious disease and epidemics, operation and management of fire brigades,developing mitigating and preventive measures against landslide and foods are some of the assigned
task that local bodies can pursue by using the legal authority granted by the LSGA.
3.3

National Strategy for Disaster Risk Management (NSDRM), 2009

The NSDRM was promulgated in 2009. This strategy has been developed on the base of Hyogo
Framework for Action (HFA) 2005. A detailed process was adopted during the preparation of the
NSDRM, 2009. Multiple occasions were organized to solicit the view of governmental,
nongovernmental agencies, local bodies, academic institutions, private sector, UN agencies, INGOs,
and civil society organizations. The long term vision of the strategy is to develop Nepal as adisaster-resilient community. It has also a mission to provide guidance and ensure effective disastermanagement through development and implementation of the concept of effective preparedness for
mitigation, disaster risk reduction and incidence of calamities. Besides this, the strategy has been
adopted the some major directive principles for disaster risk management, which are mainstreaming
DRR concept into the development plan, ensuring life safety and social security, and giving emphasis
to gender and social inclusion. It adopts decentralized process of implementation by following theholistic approach and by giving priority to staff safety and security. It follows one-window policy andcluster approach in implementation of DRM to work in the spirit of participation, interaction, andcoordination. The strategy has been framed on the foundation of five priority actions of HFA 2005. In
addition, 29 activities have been identified within the priority areas. Realizing that disastermanagement is a multidimensional and multi-sectoral responsibility, sectoral strategies have also been
adopted. Those sectors are broadly divided into nine areas, which are Agriculture and Food Security,
Health, Education, Shelter, Infrastructure and Physical Planning, Livelihood Protection, Water andSanitation, Information, Communication, Coordination and Logistics, Search and Rescue and Damage

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and Need Assessment. The strategy has also proposed new institutional arrangement for disastermanagement which entail the formation of a National Disaster Management Council (NDMC) being
chaired by Prime Minister. Besides, it also envisions National Disaster Management Authority(NDMA) as a secretariat of the council where other three committees under the council for
preparedness, rescue and relief and reconstruction and rehabilitation activities. The strategy realizes
that disaster management is possible only through integrated, participatory, and collaborative
involvement of all partners. As such due importance is given to UN agencies, donor community,
inter-governmental agencies, I/NGOs, and people from different segments of civil societies.
3.4

Consortium/Flagship Approach on Disaster Risk Reduction

A Consortium was formed in May 2009 to support the Government of Nepal till 2015, to develop along term Disaster Risk Reduction Action Plan building on the National Strategy for Disaster Risk
Management (NSDRM). Members of the Consortium are Department of International Development
UK (DFID), the Asian Development Bank (ADB), the International Federation of the Red Cross and
Red Crescent Societies (IFRC), United Nations Development Program (UNDP), UN Office for the
Coordination of Humanitarian Affairs (OCHA), UN International Strategy for Disaster Reduction(ISDR) and the World Bank. The Indian Government and Japan International Cooperation Agency
also joined the Consortium as an observer. In addition, the Consortium initiated a multi-stakeholder
participatory process with the Government of Nepal and civil society organizations to identify short tomedium term disaster risk reduction priorities that are both urgent and viable within the current
institutional and policy arrangements in the country. Based on the priorities set by the government andalso discussions with multi-stakeholder groups, five flagship areas of immediate action for disasterrisk management in Nepal are school and hospital safety- structural and non-structural aspects ofmaking schools and hospitals earthquake resilient, emergency preparedness and response capacity,
flood management in the Koshi river basin, integrated community based disaster risk
reduction/management and policy/institutional support for disaster risk management. The estimatedtotal budget of the three-year Flagship Programs is US $131.1 million and the amount may keepchanging according to the consensus with the development partners. In developing the programme,
the priorities outlined in the ‘Hyogo Framework of Action 2005-2015, Building the Resilience of
Nations and Communities to Disasters’, and the Outcomes of the Global Platform for Disaster Risk
Reduction (2009), which sets out specific targets for reducing losses from disasters, were taken into
account. On 19 March 2010 the Government formally established the Nepal Risk Reduction
Consortium (NRRC) Steering Committee, chaired by the Secretary of Home Affairs. Members
include the Joint Secretaries of the Ministries of Finance, Education, Irrigation, Local Development,
Physical Planning, Health and Population, and the National Planning Commission. Directors andrepresentatives of the ADB, WB, UNDP, OCHA, IFRC, NRCS, and DP-Net are also members. The
Joint Secretary of MoHA is Member Secretary. The concept of Consortium is working smoothly tillto date.

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3.5

Periodic Plans

As the history shows that the Disaster Management Programs was first included in the 10th national
plan (2002-2007) of the government of Nepal, the emphasis has gone to ascending orders till thecurrent three year plan (2013/14-2015/16) that has emphasized the disaster management as a separate
topics and also has tried to mainstream the disaster management with various line items topics. This
has also focus on the importance of new disaster management act and new institutions to deal with thedisasters. The plan emphasizes on policy formulation, strengthening institutional mechanism, EWS,
coordinated approach for DRR and linking disaster management with climate change. It is hoped that
this attempt would be a landmark in the history of Disaster Management. The plan has set up its
vision to minimize social and economic loss and damage caused by disasters. The main objective ofplan is to promote the security of life and property from the impact of natural disasters throughsustainable, environment-friendly and result oriented development by making disaster management
practices efficient, competent, strengthened and effective. To develop and apply environment-friendly
systems in development and construction works, appropriate information flow and pre-disaster
preparedness for the mitigation of risks of natural disaster, strengthen collaborative works between thegovernment, non government and private sector for rapid response and recovery are the major
strategies of the plan. The plan has listed the programs of formulation of national strategy, awarenessraising, preparedness for effective response and recovery, study and research, risk and hazard zone
mapping, stockpiling of relief and rescue materials, and enhancement of involvement of local bodies.
The approach paper to the current 13th three year development plan (2013/14-2015/16) has not only
devoted separate chapter for disaster management issues, but also the plan addressed disastermanagement issues more comprehensively. It has set its disaster management goal to achieve goal of
Hyogo Framework for Action by 2015 and has also tried to link up with the HFA2 Priorities, alongwith the long term goal of the plan is to develop disaster resilient Nepal. Moreover, mainstreaming
disaster risk reduction, institutional and legal reform and preparedness for better response are thestrategies of this plan.
3.6

Other Laws and Policies

There are lot more acts, rules, regulations and guidelines, directly related to, just related to andindirectly related to the disaster management, some of them like Soil and Water Conversation Act,
1982, Nepal Building Act, 2007 and Building Code, 1994, Environmental Protection Act, 1996,
National Agriculture Policy, 2004, National Shelter Policy, 1996, National Urban Policy, 2006,
National Water Plan, 2005 and Water Resource Policy, 1993, National Water Resource Strategy, 2002,
Water Induced Disaster Management Policy, 2006 and some strategies related to health andinfrastructure sectors are considered as a majors in the area of disaster management in Nepal.
3.7

Ministry of Home Affairs

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Ministry of Home Affairs (MoHA) acts as National Focal Agency on Disaster Management and leadagency responsible for implementation of the Natural Calamity (Relief) Act, 1982. The MoHA is also
responsible for rescue and relief work, data collection and dissemination, as well as collection anddistribution of funds and resources. The assigned task has being implemented through Disaster
Management Section and National Emergency Operation Centre. The Ministry has established aseparate division of disaster management named it Disaster Management Division, placing three
sections namely Disaster Preparedness and Recovery Section and Disaster Study and Research
Section along with the response focused National Emergency Operation Center.
3.8

Central Natural Disaster Relief Committee (CNDRC)

CNDRC is chaired by the Home Minister and includes related ministries and security agencies alongwith voluntary organizations such as NRCS. CNDRC is responsible for preparing national policies on
preparedness, response and recovery and ensuring their implementation, stockpiling relief and rescuematerials, collecting and disseminating relief materials and fund during emergency, give direction to
the district and local committees for the execution of relief work. To support the functioning of
CNDRC, there is Sub-committees of Relief and Treatment, and Supply, Shelter and Rehabilitation.
3.9

RDRC/DDRC/LDRC

Regional Disaster Relief Committee (RDRC) is present in all five regions of Nepal and is chaired by
the Regional Administrator. It comprises related government agencies and security agencies (law andorder, emergency response and development institutions) along with voluntary organizations such as
Red Cross. It is responsible for supporting and monitoring the activities implemented by DDRCs andformulates regional and district level disaster management plan. All 75 districts of Nepal have aDistrict Disaster Relief Committee (DDRC). The chairperson is the Chief District Officer (CDO),
who is the highest-level government official to take disaster-related decisions. It comprises various
line agencies such as law and order, emergency response (police and armed police), district chapter of
NRCS and critical facilities such as irrigation, road, livestock, health, etc. The role of DDRC is tocoordinate the local committees, formulate district disaster management plan, coordinate and operaterelief work during emergencies and provide information to RDRC and CNDRC. The Local Disaster
Relief Committee (LDRC) is responsible for disaster management at the local level, such as
disbursement of funds during emergencies, and rescue and transport of the injured to hospitals.
3.10

Institutional arrangement in Chart

The figure below clearly revel the proper institution arrangement for disaster management, but thisstill does not reflect the all cycles of disaster management, placing the role of Ministry of Federal
Affairs and Local Development and Ministry of Urban Development.

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3.11•

Other Government Institutions Working on Disaster Risk Management
Ministry of Federal Affairs and Local Development, Disaster Management Section,
responsible lead ministry for preparedness and mitigation•

Ministry of Urban Development, responsible lead ministry for recovery•

Ministry of Irrigation for embankment and irrigation related disaster management activities•

Ministry of Defense for foreign search and rescue coordination•

Ministry of Energy for water -dam and other energy related disaster management activities•

Ministry of Physical Infrastructure and Transport Management•

Ministry of Science and Technology, Department of Hydrology and Meteorology•

Ministry of Health and Population for emergency medical care•

Ministry of Forest and Soil Conservation for forest and land related disaster management
activities•

Central Natural Disaster Relief Committee, apex policy body headed by home minister
responsible for policy formulation, program approval and monitoring the implementation
related to disaster management activities•

Relief and Treatment Sub-Committee, headed by federal affairs and local development
minister and Supply, Shelter and Rehabilitation Subcommittee headed by urban development
minister as two major sub-committee directly working with the CNDRC•

Regional Natural Disaster Relief Committee•

District Disaster Relief Committee
Local Disaster Relief Committee (VDC or Municipality

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4.

•

Department of Water Induced Disaster Prevention•

Department of Mines and Geology•

Department of Hydrology and Meteorology•

Department of Soil Conservation and Watershed Management•

Department of Irrigation•

Epidemiology and Disease Control Division•

National Seismological Center•

Other government Ministries and Departments•

And Local Bodies

HFA Update in Nepal

Nepal is a signatory country to HFA 2005. It has already expressed a commitment to achieve the HFAgoals by 2015. So far, Nepal has submitted two HFA progress monitoring report regularly and has
also submitted the priority for Nepal in HFA2. Nepal has achieved the following progresses which arealso featured in HFA final report.
4.1 Strategic Outcome for Goal 1: The more effective integration of disaster risk considerations into
sustainable development policies, planning and programming at all levels, with a special emphasis on
disaster prevention, mitigation, preparedness and vulnerability reduction. Disaster Risk Management
has remained a national priority from the initiation of 10th Five Year Plan (2002-2007) period, as theplan has incorporated the DRM issues in Plan and Policies first time in Nepal, that underscored DRM
as a main objective to ensure sustainable development, sustain development gains, public safety,
effective management of natural resources and human induced disasters. The subsequent 3-year
development plans including the 13th Three-Year Plan (2013/14-2015/16) have emphasized that DRM
is a national priority and an integral component of sustainable development. In addition to thesedevelopment plans, the Government of Nepal adopted the National Strategy for Disaster Risk
Management (NSDRM) 2009 has outlines the priority objectives for DRM in Nepal based on HFAPriorities. To successfully implement the NSDRM, the Government of Nepal, financial, humanitarianand development partners jointly initiated the Nepal Risk Reduction Consortium (NRRC), which
officially launched in 2011. The NRRC has developed a comprehensive Flagship program, which
identifies 5 priority areas in DRM for immediate intervention.
As the focal ministry for DRM in Nepal, the Ministry of Home Affairs (MOHA) has recently
completed the National Level Multi Hazard Risk Assessment covering five major hazards. This has
enabled Nepal to identify and understand the major hazards facing the country and probable risks. The
cabinet has also approved National Disaster Response Framework (NDRF) putting the clear role andmandate of all government and non-government related stakeholders to response disaster. At the
district level, all 75 districts have developed Disaster Preparedness and Response Plans (DPRP) and

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are in a process of updating in yearly basis. In order to implement these plans, the District Disaster
Relief Committees (DDRCs) have been streamlined and empowered to strengthen DRM efforts andenhance emergency response capacity. These all DPRPs have now listed in Ministry's website todisseminate the idea to all stakeholders and also for feedback. About 100 VDCs, in several districts
have prepared Local Disaster Risk Management Plans including prioritization of three main hazards
with a mandatory earthquake risk assessment.
To make DRM a part of development process at local level, the Ministry of Federal Affairs and Local
Development developed the Local Disaster Risk Management Planning Guidelines (LDRMP). At
local level, there is a focus on enhancing the engagement of local bodies and communities inprevention initiatives and also for mitigation. With support and initiation of NGOs, Disaster
Management Committees have been formed at VDC level. Under the NRRC Flagship 4, Community
Based Disaster Risk Reduction a total of 583 VDCs (out of 1,000 target) have been covered for
current and agreed CBDRR projects. Six municipalities out of 58 have started implementing Safe
Building Construction Practices using the seismic code provisions in the local context. To promote
safer construction and infrastructure development, concerted efforts by government and NGOs are
gearing up to support the implementation of seismic safety standard effectively throughout the country.
The code practices have been initiated in new Municipalities. In 2012 alone about 100 engineers andsub engineers and about 1,000 masons have been trained on earthquake safe construction practices.
Cabinet has approved the 83 Open Space in Kathmandu Valley to have managed campsites in time ofmega disaster and this is process of Gazette-Notification, will be followed by formulation of CampManagement Planning.
4.2 Strategic Outcome for Goal 2: The development and strengthening of institutions, mechanisms
and capacities at all levels, in particularity the community level that can systematically contribute tobuilding resilience to hazards. The Ministry of Home Affairs (MoHA) is the focal agency for
implementing the NSDRM in Nepal. The mandate of MoHA has been strengthened to address thecomprehensive DRM needs in the country while international coordination mechanisms and linkages
with relevant stakeholders has been developed and strengthened to enhance the institutional capacity
for implementing DRM activities in the country. The National Disaster Response Framework (NDRF)
has been finalized to ensure collective and coherent understanding of those roles and responsibilities.
The NSDRM envisages a Central Level Disaster Management Council, which is to be chaired by the
Honorable Prime Minister. The NSDRM proposes a Disaster Management Agency as a secretariat of
the Council to streamline the institutional processes across the relevant agencies at national level withlinkages down the line. The government has established Disaster Risk Management Focal Desk andappointed officials in all ministries to mainstream DRM in regular planning, implementation andmonitoring activities. A harmonized ToR has been developed for all DRM and Climate Risk
Management Focal Officials in each ministry. The government has promulgated the Local

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Self-Governance Act, 1998, which initiated a decentralization process that delegates more authority tolocal bodies. The formation of Disaster Management Committees (DMCs) has been initiated inapproximately 400 VDCs and the Government of Nepal is preparing to expand these institutions inother VDCs and strengthen their linkage with respective DDRCs. Along with the relief distribution of
the Government, the relief has also carried out through the Cluster Approach. This approach has
identified lead agencies in 10 clusters and one early recovery network both at Government Ministries
and the Donors. Ministries have taken ownership of the cluster approach and have started
implementation. This approach is instrumental to achieve effective response and improve strategic
prioritization of available resources by clarifying the role and responsibilities of participatingorganizations.
4.3 Strategic outcome for Goal 3: The systematic incorporation of risk reduction approaches into thedesign and implementation of emergency preparedness, response and recovery programs in thereconstruction of affected communities. Approximately there is one disaster per day and two deaths
per disaster due to natural disasters in Nepal. These impacts will likely be aggravated due to climatechange/variability induced factors. Most of the deaths and damages are due to water induced disasterand are reported during the monsoon season covering July to September each year. In order to copewith disaster, pre-monsoon planning workshops were initiated in 2011, replicated in 2012 and willcontinue in 2013 at national and district levels. In addition, stakeholders are engaged to prepare and to
implement disaster response plans at district level. The National Emergency Operation Centre(NEOC) has been operationalized as a section at MOHA since its inception in 2011. The NEOC has
strengthened the information and coordination mechanism among disaster management actors. The
District Emergency Operation Centre (DEOC) has been established at 36 districts by 2013. Regionaland municipality level EOCs in each region and five municipalities are in a process of establishment.
Hospital Preparedness for Emergencies (HoPE), Medical First Responders (MFR) and Collapsed
Structure Search and Rescue (CSSR) training are being given to medical officers and security
personnel. 30 trainers from all security forces and fire brigades have been trained on basic fire safety
for a month in 2012 and this training will continue in 2013 to cover more participants from eachmunicipality.
Following a 2011 INSARAG scoping mission, work is underway to upgrade urban search and rescue
and fire services. The scoping mission has been followed by Chinese Mission as well in 2013. MOHA
has come up with USAR Strategic Action Plan, submitted to the Cabinet for endorsement. As acontinuous process towards comprehensive emergency response planning in Kathmandu valley, 83
open spaces for evacuation during emergencies have been decided by Cabinet within Kathmandu
valley and earthquake preparedness plans in 80 wards have been initiated. WASH facilities are being
assessed in seven large open spaces. The Inter-Agency Standing Committee (IASC) contingency plans
have been developed and endorsed by all clusters and shared. One window policy and the cluster

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approach in emergency response have been successfully realized in dealing with different disasters in
the past. For initial damage and loss estimation, a standard information collection process using Initial
Rapid Assessment (IRA) at local level followed with Multi-sectoral Initial Rapid Assessment (MIRA)
has been practiced since 2009. An initiation of preparing unified Assessment Tools is in process,trying to merge IRA, MIRA, Cluster-wise Assessment and Post-Disaster Need Assessment (PDNA).
Linkages between risk reduction and response are being strengthened. For example, approximately
100 engineers and sub-engineers and 1,000 masons have been trained on earthquake resistancebuilding construction in the eastern part of Nepal as part of a disaster recovery program.
5.

Challenges and the way forward in the area of DM in Nepal

5.1

Mainstreaming DRR•

The new development policy of Nepal acknowledges the incorporation of DRR intodevelopment plans. However, what is reflected and underscored in the plans is notsubstantiated in the annual programs and budgets.

•

One of the reasons for this is lack of tools to assess contribution of an investment indevelopment sectors towards disaster resiliency of a community and/or nation.

•

A separate and robust mechanism is required in place to assess disaster resiliency of the
project itself and also of its contribution toward disaster resiliency of a community.

5.2

Institutional strengthening and capacity building•

The emergency response and relief approach is so entrenched in the current system that it willtake time to mobilize the system to more comprehensive disaster risk management approach.

•The new policy and act - currently in pipeline- will be instrumental to gear up the efforts
towards changing the existing mindset.

•

The new policy and act will also authorize the government to arrange and mobilize sufficientbudget with straight mechanism to spend on mitigation, preparedness and recovery.

•

The new legal and policy frameworks are expected to empower the government to undertake
preparedness of better emergency response in effective way.

•

Although emergency response has been the main thrust of the disaster risk management in theprevious years, it was basically ‘wait and see’ approach with spontaneous reactions to provide
rescue and relief.

•

SOPs have not been fully developed, institutional mechanisms are in need of strengthening•

There is need to develop network of EOC across the country from central to local level withproper linkages.

5.3

Some other major challenges and way forward•

Technical and financial capacity to implement plans successfully•

Difficult terrain and weak logistics resulting in delayed response

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Preparedness to response, management of warehouses with stockpiling•Trained and consolidated Search and Rescue Team•

Communication equipment, transportation in emergency and other infrastructures•

Implementation of National Building Codes•

Management of evacuation sites, open spaces•

Limited Fire Services, strengthen their capacity•

Implementation of NSDRM, 2009•

Progress accordingly HFA Priority and HFA2•

Establishment of National Disaster Management Agency•

Strengthening the response mechanism and coordination•

Implementation of National Disaster Response Framework•

Endorsement of EWS Strategic Action Plans and Establishment of Early Warning System•

Mainstreaming DRR into development planning, implementation and monitoring &among Security

Evaluation

6.

•

Expand EOCs at regional, district and municipal/ VDC levels•

Establish additional warehouses in various strategic locations of the country•

Emergency services: Fire and Health Services•

Develop USAR Capacities at National and Local levels•

Fund raising on the preparedness for humanitarian responses (technical and financial)

Conclusion

It is encouraging to state that policy makers have realized that disaster risk management is a key toachieve sustainable development. After becoming signatory to HFA 2005, the government prioritized
DRR in its development agenda and adopted National Strategy on Disaster Risk Management in 2009.
The NSDRM, 2009 has clearly incorporated five priority areas as stipulated in HFA. The flagshipapproach has been introduced for immediate action for disaster risk management in Nepal. National
Emergency Operations Centre (NEOC) facilitates effective emergency management. National
Platform on DRR has been formed to make DRR effort more cooperative and collaborative between
governmental and non-governmental actors. DRR Focal desk has been instrumental for effective
implementation of disaster risk reduction related policies and programs in relevant ministries,
departments, security agencies and local bodies.
Although the MoHA has achieved some fresh progress on policy and institutional levels and stillsome are in the offing, there ahead lies a well implementation and smooth functioning of policies andprograms. Adequate resources, commitment, cooperation and collaboration are always needed tobring these policies and programs into fruition. Mainstreaming DRR in sectoral development,
effective implementation of building code and building act, implementation of land use and settlement
planning, changing mindset of the people, development and strengthening of effective institutions on

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DRR are some pressing issues in disaster management of Nepal.
7.

ADRC Counterpart

Disaster Management Division, Ministry of Home Affairs, Kathmandu, Nepal
Bibliography/References
GON, 1982: Natural Calamity (Relief) Act, 2039, Government of Nepal, Kathmandu
GON, 1999: Local Self Governance Act, 2055, Government of Nepal, Kathmandu
MOHA, 2009: National Strategy on Disaster Risk Management, 2009, Ministry of Home Affairs,
Kathmandu
MOHA, 2009: Nepal Disaster Report, 2009, Ministry of Home Affairs, Kathmandu
NPC, 2059: Tenth Plan, 2059-2064, National Planning Commission, Kathmandu
NPC, 2064: Three Year Interim Plan, 2064-2067, National Planning Commission, Kathmandu
MOHA, 2010: Disaster Scenario in Nepal (Unpublished data), Disaster Management section,
Ministry of Home Affairs, Kathmandu
MOHA, 2010 b: Draft of Disaster Management Bill 2010, Ministry of Home Affairs, Kathmandu
MOF, 2010: Economic Survey 2066-67, Ministry of Finance, Kathmandu
NPC, 2010: Nepal Millennium Development Goals Progress Report, National Planning
Commission, Kathmandu
WHO: Nepal Hazard Profile and Disaster Preparedness, World Health Organization, Kathmandu
in www.searo.who.int
Marasini, S, 2008: A country Paper on Disaster Risk Reduction Management in Nepal, Presented
in Visiting Researcher Program, ADRC, Kobe, Japan
UNDP, 2010: Nepal Human Development Report 2010, UNDP Kathmandu
CBS, 2009: Report on the Labor Force Survey 2008, Central Bureau of Statistics, Kathmandu
Global Finance: www.gfmag.com/gdp-data-country-reports.html
CBS, 2011: Preliminary Report of Census 2011
CBS, 2011: Third Nepal Living Standard Survey, 2011
Prevention Web: www.preventionweb.net
MoHA 2011: Nepal Multi-hazard Risk Assessment Report 2011
Data and Information from SAHANA Program, www.moha.gov.np, www.neoc.gov.np

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