Final Report

Multi-national Mission to the Tsunami Affected Areas in India
8-13 April 2005
1. Introduction
1.1

Introduction of ADRC
The Asian Disaster Reduction Center (ADRC) was established in July 1998 with a mandate tofacilitate multi-national cooperation for disaster reduction in the Asian region. Along with 25 member
countries, ADRC pursues activities leading to further prosperity and safe, peaceful, and comfortable lives
in Asia.
ADRC also addresses issues of concern related to disaster reduction from a global perspective, in
cooperation with international organizations and initiatives, such as the Inter-Agency Secretariat of theInternational Strategy for Disaster Reduction (UN/ISDR), the United Nations Office for the Coordinationof Humanitarian Affairs (UN/OCHA), UNESCO, the United Nations University (UNU), the United
Nations Economic and Social Commission for Asia and the Pacific (UN/ESCAP), World MeteorologicalOrganization (WMO), and the World Health Organization Regional Office for the Western Pacific(WHO/WPRO).
1.2

Brief description of the survey mission
ADRC has always been keen to learn from the lessons gained from disasters in member countries andstrengthen capabilities for disaster reduction of the countries in the Asian region. However it is often
troublesome for the disaster affected areas to receive missions from abroad at the time of emergency.
Furthermore, there are some constraints to dispatch survey teams to disaster affected areas due to political,
socio-economic or cultural reasons. Considering the above, the multi-national mission provided a valuable
opportunity for ADRC member countries.
In the past, ADRC organised a multi-national mission to Gujarat after the devastating earthquake
occurred in 26 January 2001, as part of the cooperative project with member countries. In April 2005, after
the catastrophic Tsunami which destroyed the coastal areas of the Indian Ocean countries including India
on 26 December 2004, ADRC conducted a multi-national mission to the Tsunami affected area in India, in
active cooperation with the Ministry of Home Affairs, Government of India, as well as other member andadvisor countries.
The mission visited the severely affected districts of Kollam and Alleppey in Kerala, Kanyakumari,
Nagapattinam, Cuddalore, Kancheepuram and Chennai in Tamil Nadu and Karaikal and Pondicherry
divisions of the Union Territory of Pondicherry.
The objectives of the mission were: 1) to learn the lessons from the Tsunami disaster, 2) to develop aroad map for mitigating future Tsunami disasters, 3) to provide knowledge and expertise forreconstruction and rehabilitation for Tsunami affected areas, and 4) to learn about changes/reforms
planned to be undertaken in disaster management system following the Tsunami experience by the central
and local governments.

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The multi-national mission to Tsunami affected areas in India led by ADRC was conducted from 8-13
April 2005. The members of the mission were from Armenia, India, Japan, Singapore, Sri Lanka,
Tajikistan and ADRC. Detailed list of the members of the mission is shown in the following section.
1.3

Profile of the members
Among the ADRC member countries, nine officers and experts from Armenia, India, Japan, Singapore,

Sri Lanka and Tajikistan joined the mission. A representative from France and two from the United Statesof America (USA), as advisor countries, participated in the activities in Delhi.
Country
Armenia

Name
Dr. Alvaro Shavarsh ANTONYAN

Organization
President, Armenian National Survey for Seismic
Protection (NSSP)

India

Mr. Amir Ali KHAN

Senior Research Officer, National Institute of Disaster
Management, Ministry of Home Affairs, Govt. of India

India

Mr. Shekhar CHATURVEDI

Research Associate, National Institute of Disaster
Management,
Ministry of Home Affairs, Govt. of India

Japan

Dr. Michiko BAMBA

Researcher, Earthquake Disaster Mitigation ResearchCenter (EDM), National Research Institute for Earth
Science and Disaster Prevention (NIED)Japan

Dr. Kenji MAEDA

Head of the Fourth Research Laboratory, Seismology
and Volcanology Research Department, MeteorologicalResearch InstituteSingapore

Maj. YAP Kok Boon

Division Commander, 1st Civil Defence Division,
Singapore Civil Defence ForceSingapore

Cpt. GOH Boon Han

Senior Instructor, Civil Defence Academy, Singapore Civil
Defence Force

Sri Lanka

Mr. Kalu Gamage WIJESIRIAssistant Director, National Disaster Management Centre

Tajikistan

Ms. Nigina Sulaymonovna ALIEVA

Project Analyst, United Nations Disaster Risk
Management Project, UNDP

FranceUSA

Mr. Pierre-Andre LHOTE

Attache for Science and Technology, French Embassy in(Delhi only)

India

Mr. C. Balaji SINGH

Project Manager, Disaster Management Unit, Office of(Delhi only)

the Social Development, US Agency for International
Development (USAID)

USA

Mr. David A. HEESEN (Delhi only)

US Agency for International Development (USAID)

ADRC

Ms. Etsuko TSUNOZAKI

Senior Researcher, ADRC

ADRC

Mr. Takuzo ISHII

Senior Researcher, ADRC

ADRC

Ms. Tae WATANABE

Administrative assistant, ADRC

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2. Background
2.1

Outline of the Tsunami disaster in the Indian Ocean
On 26 December 2004, the world's fifth-largest earthquake of the magnitude of 9.0 on the Richter scaleoccurred at 00:58 hrs GMT, off western coast of Northern Sumatra, Indonesia. The epicentre was some 10
km under the seabed and 250 km south-southwest of Banda Aceh, Indonesia. The earthquake triggered aseries of powerful Tsunami reaching more than 10 meters high, and these Tsunami waves moved throughneighbouring countries of the Indian Ocean at 500 km per hour wrecking coastal areas in Bangladesh,
India, Indonesia, Malaysia, Maldives, Myanmar, Sri Lanka, Thailand, and even some countries in eastern
Africa, Kenya, Seychelles, Somalia and Tanzania. The Tsunami washed away homes, buildings, roads andbridges, causing massive human sufferings.
The Tsunami was one of the deadliest disasters in modern history, resulting in about 300,000 people’sloss of lives, one million homeless people and many hundreds of thousands losing their entire livelihoods.
Various recovery efforts have been undertaken in these affected areas by donor countries, internationalorganizations, international and local NGOs and UN agencies.
2.2

Outline of the impacts of the Tsunami in India
According to the CRED-EMDAT, the Indian Ocean Tsunami devastated the areas of coastline in India,

namely Tamil Nadu, Andaman and Nicobar Islands, Andrhra Pradesh, Kerala and Union Territory (UT) ofPondicherry, causing 16,389 people killed, 6,913 of injured, 647,599 of affected and US$1,022,800,000
damage. The highest human losses were in Andaman and Nicobar Islands and the state of Tamil Nadu.
Relief effort in response to the Tsunami in India was coordinated efficiently by the Ministry of Home
Affairs as the nodal agency at the national level; by the Relief Commissioners at the state and UT levels,and by the Collectors at the district level. It should be noted that not only the governments carried out relief
activities, but also UN agencies, community members, individuals and local NGOs as well as the private
sector responded to the needs of the affected communities.
3. Places of visit
3.1

National Governments

3.1.1 Ministry of Home Affairs (NDM: National Disaster Management Division)
The NDM is the central authority which coordinates and ensures the smooth flow of all relief andrehabilitation efforts for disasters. Since the Tsunami Disaster, the NDM has taken on the extra roles ofcoordinating for all national disasters except for drought. Their command and control capabilities havegreatly expanded with the setting up of the ‘state of the art’ communication networks and establishing acommand post within the Ministry of Home Affairs. Cooperative working relationships with various
countries on information and experience sharing on disaster management have also been established. The
Central Government of India has also made provisions for the NDM to obtain relief funds directly fromthe country’s consolidated fund without having to seek approval in the Parliament which is often time
consuming and thus, cutting down the lead time for crucial supplies to reach the victims who need themthe most.

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The NDM is also currently in the process of setting up an early warning system in the Indian Ocean
to warn the countries along the coast of any impending Tsunamis and to allow the people ample time toevacuate.
3.1.2 NIDM (National Institute of Disaster Management)
The NIDM is staffed with many researchers and academics with the aim to explore and seek the
optimum mode of disaster management. Their studies include lessons learnt from past disasters,
analysing them and passing on to states and districts for them to build up the necessary capacity inenhancing their ability and preparedness to handle a disaster.
Prior to the Tsunami disaster, little was known about Tsunami in India and nobody was aware of thedevastation that such a disaster would bring. The NIDM has gone into extensive research on the topic of
Tsunami and Tsunami warning systems. India is now much better equipped and prepared for any such
Tsunami in future.
3.1.3

Roles and responsibilities of NDM (Ministry of Home Affairs) and NIDM

All natural disasters (except drought which refers to the Ministry of Agriculture) are legally managed
by the Ministry of Home Affairs, which in its turn coordinates the activities of various ministries andprovides support to them. The Ministry of Home Affairs, being the nodal Ministry, has beencoordinating the relief, response and rehabilitation measures with the affected States/ UTs, the Central
Ministries/Departments providing emergency support including the Ministry of Defence and Armed
Forces, other States and NGOs. The Ministry is coordinating the mobilization of resources and theirdispatches and other logistics. (source: http://www.ndmindia.nic.in/Tsunami2004/mha.htm).
The National Institute of Disaster Management (NIDM), under the Ministry of Home Affairs,
Government of India, is an Institute for policy advocacy and capacity building in the area of disastermanagement in the country. Founded in 16 October 2003, the Institute has been conducting work in suchareas as disaster mitigation, preparedness, response, rehabilitation and reconstruction using a
multi-disaster risk management framework adopted by the Government and other stakeholders.
3.1.4

Action and measures taken by the Government of India during and after the Tsunami

The Government of India down to the state and district levels have been caught by surprise by the
Tsunami, but regardless, a quick response was mobilized to effectively address the situation. The
Ministry of Home Affairs, as the main coordinating body, took lead in all activities related to response
and relief through the central control room, as well as through the visits to the affected areas. The
Government allocated US$ 112 million to address the immediate needs of the population, with no limit
identified. Financial assistance and relief material to families affected most was provided by theGovernment.
On the state level, State Relief Commissioners were appointed to coordinate rescue and relief efforts
through the District Collectors with active involvement of the police, fire, rescue, medical and healthservices, national army, air force and other related departments and bodies. The priority for the local

4authorities was to meet the immediate needs of the population, such as with the provision of shelter,clean water, electricity and prevention of outbreak of infectious diseases.
The Government of India did not make any request for international assistance as it had enoughcapacity and resources to handle the situation nationally. For the rehabilitation and reconstruction
phases a Planning Commission has been established at the Government level, which includes the UN,
ADB and World Bank representatives. At this stage, the Ministry of Home Affairs is not as actively
involved, as its mandate includes more immediate relief and response activities. The Planning
Commission would work on the development of a comprehensive reconstruction plan of the affected
infrastructure and long term rehabilitation of the affected population. The plan will be finalized andimplemented by the local governments, with active involvement of the local population.
The longer-term objective of the Government of India is to develop a comprehensive Early Warning
System for Tsunami (following the Japanese model of EWS), which is planned to be in place in 2 years(2007). The system will be owned and managed by the Government of India.
3.2

State and Union Territory Governments and District Administrations

3.2.1

KeralaAccording to the Government of India, in Kerala 171 deaths were reported,: in Kollam district 131
deaths were reported, in Alappuzha – 35 deaths and in Ernakulam – 5 deaths were reported (source: UN
Country Team India Report, March 2005).
3.2.1.1

KollamGovernment officials said that the third Tsunami attack brought damages to the villages. Kollam
was relatively spared from the impact of the Tsunami comparing to the area on the east coast. Main
infrastructure was found intact with low number of fatalities. More than 50% of the deaths among 131
deaths in this district were seen in the area that was surrounded by the sea on three sides, and there isa path to be connected with other area on only one side. Many deaths were seen in the area where
there were no sea walls. Six sea walls were damaged due to the Tsunami.
Regarding the reconstruction of houses, the state provides land behind road distant from thecoastlines. The land for 600 families was prepared by the State of Kerala. Financial aid to construct
houses was provided by NGOs only if houses are constructed within the regulated zone distant fromthe coastline. Local government also prepared a plan of residential buildings for Tsunami victim’s
rehabilitation. It is designed to be Tsunami-proof.
3.2.1.2 Alappad
Prior to the Tsunami, the houses stood in the limited space near the coastline in this village,
therefore, this village was exposed to the Tsunami risk. Most of them were either totally or partiallydestroyed by the waves. However, it is assumed that damages were mitigated as this area wasprotected by sea walls and many palm trees. There are some houses close to the coastline remained
without serious damage. Sea walls remained partially damaged or collapsed.

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Temporary shelters for victims were constructed well in the area close to the coastline. The village hasvery limited space as it is located between the sea and backwater. Reconstructed houses will belocated behind the backwater distant from the coastline.
3.2.1.3 Alappuzha (Alleppey)
Casualties are concentrated in certain areas as some of the villages of this municipality are
surrounded by water and there is only one road and one bridge that connected the area with otherareas. New road and bridge are planned to be constructed by the government. Well constructedtemporary shelters were provided to the affected residents.
3.2.2

Tamil Nadu

In Tamil Nadu over 7,983 deaths were reported: the worst affected was Nagappathinam, where about
6,051 people died. Over 824 people died in Kanniyakumari and 612 deaths were reported in Cuddalore(sources: UN Country Team India Report, March 2005).
3.2.2.1 Kanniyakumari
In Kanniyakumari, damages were serious. About 10% of the total population of the district wereaffected (over 800 deaths were reported), and many buildings and properties to sustain livelihood ofpeople were damaged. Many fishing boats and agricultural lands were damaged, which affects the
economy of the district. One bridge recently constructed was washed away. The famous tourist spots
built out at the sea were also attacked by the Tsunami. Fortunately, visitors were evacuated to thehigher places and there was no human casualty although many tourists were stranded in the aftermathof the Tsunami. Helicopters were deployed for evacuation.
Rescue and relief operations were deployed by the government with the cooperation of NGO
groups. Lifelines including water and electricity have been supplied or put into place at the earlier
stage.
District government emphasized the importance of infrastructure and warning system.
Construction of sea walls is planned in this district for future disaster mitigation.
A total number of 3,827 shelters were built in relief camps by the Government and NGOs torelocate the affected population. The relocated families were provided with food commodities,
clothing, drinking water and medical supplies. The number of reported affected families is 43,804 or
187, 650 people. An orphanage was founded by the government for the children who lost theirfamilies; orphaned adolescent girls will be placed in the special care home, where they will be given
vocational training for their future livelihoods.
3.2.2.2 Cuddalore
This district was also damaged seriously with more than 600 deaths and 10,000 damaged houses.
Fishing boats and net, and farm lands were damaged heavily, thus, it will take a long time to recover
the livelihoods of the people. The area protected by sea protection wall was not seriously damaged.

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Local government officials were quick to react, and the displaced residents were housed in wellconstructed temporary shelters with proper sanitation and good hygiene conditions. For 20,079
affected families in this district, a relief package consisting of cash allowance, food and commodity,
was distributed by the Government during February – April 2005. A large number of people havebeen affected indirectly, through damages to their sources of income and livelihoods, such as
agricultural crops and lands. A total of 253,420 hectares of agricultural land was damaged, affecting
around 3,977 farmers.
According to the government officials in the district the largest challenge during the aftermath of
Tsunami was the quick mobilization of response, which involved such issues as:z Identification of affected population of the disaster;z Providing livelihood support within a short period of time;z Maintaining communication with all remote villages;z Organization of systematic relief within the villages (coordination of NGO support,
relations with media, other delegations, effective man management, etc.); andz Identification of suitable areas for temporary shelters.
One of the long-term issues that was mentioned during the discussion was the identification ofareas for permanent housing, as the new areas often do not satisfy the needs of the fishermen
community who need to live and work by the sea.
3.2.2.3 Nagappathinam
Nagappathinam is one of the most devastated districts in India and sustained the highest number ofcasualties. Authorities were quick to react and no epidemic broke out despite the large number ofdeaths. Victims of the Tsunami also had their basic needs catered for promptly thanks to the swift
action of the local government.
Land use along the coastline is regulated. Reconstruction of houses on the land within 200m fromthe coastline is not allowed. Damaged houses located on the land between 200 to 500m from thecoastline are subsidized the cost for repair. Totally damaged and collapsed houses will be relocated on
the land beyond 500m from the coastline.
As noted by the District Collector during the discussion, preparedness to disasters can make asignificant difference: not only the general population, but even the management staff of the district
administration were caught unaware of Tsunami. Flexible financial support from the Government wasvery important in conducting relief work especially during the first several days after the disasterstroke. Coordination meetings were held with all relevant departments and units to better organize
relief and response efforts.
3.2.2.4 Kanchipuram
This district is also devastated heavily. A total number of about 100,000 were reported affected;
about 60,000 evacuated; 128 people killed and 28,792 relocated to 44 relief camps. Many properties
for fishing were also damaged.

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Rescue operation was conducted properly, such as removal of bodies, medical treatment for the
injured and setting up of relief camps for victims. The government provided supplies such as water,food and so on for the relief.
The following assistance has been provided to the victims of the disaster:z

A package of Rs. 4,912.00 has been distributed to 7,093 families. It includes Rs. 2,000 fordamaged houses/huts, Rs. 1,000 for provision materials, Rs. 1,000 for utensils; 60 kg of rice,
3 litres of kerosene and clothing;z

A second package of Rs. 2,912.00 has been provided to 2,289 families who lost theirlivelihoods. The package included: Rs. 1,000 for provision material, Rs. 1,000 for utensils; 60
kg of rice, 3 litres of kerosene and clothing;z

Besides, a sum of Rs. 100,000 each has been given to 103 legal heirs of the deceased, whowere killed by the Tsunami.

Temporary shelters were provided by the government and NGOs with proper sanitation and goodhygiene conditions. The government proposed to construct new houses to all affected families on theland 200m away from the coastline at a cost of Rs.1.50 lakhs per house. Houses are designed to beearthquake, cyclone and Tsunami resistant. The construction will be taken up by NGOs.
The government emphasized the importance of recovery of livelihood and plantation of mangrove
along the coastline for the next step.
3.2.2.5 Chennai
According to the Chennai District Collector, as soon as the warning about the earthquake has been
received, some of local population did not enter the sea and stayed at least 200 meters away from thecoast, taking precautions. Unfortunately due to the low awareness about Tsunami, the majority ofpeople did not take these warnings seriously.
The number of reported deaths in Chennai District was 158. The families of deceased were paid Rs.
10,000 of cash allowance. Monthly relief package to the affected families included: Rs. 1,000 as cash
doll and other commodities as rice, kerosene, salt, sugar, tea, etc. The package was provided to 44,359
people during February – April 2005.
The economic loss is estimated $8 million. As Chennai is the largest city among the affected areas,various groups including agriculture, fishery, small business sectors and small industries are affected.
10,000 ha of the agricultural field were damaged by sea water, and it cannot be used for at least three
years.
Children and young women were provided a special care including education and psycho-social
support. Land use near the coastline is not allowed, but it is not restricted strictly.
Permanent houses are encouraged to be located far from the coastline, but people have started staying
close to it although people were initially scared and moved away from the coastline. Although there isa regulation for the coastline land use, it is not enforced strictly.
To recover the livelihood of the victims, the harbour has been repaired and compensation for thedamage on boats and nets are provided. However, the government only compensates partially and8victims need to loan money for the rest.
Lessons learnt from the disaster are raising awareness of the importance of disaster risk reduction,
coordination between groups and organizations, and preparedness for disaster. Obstacles identified by
the government are dealing by various groups including NGO groups and the private sector. Databaseof damages and geographic information needs to be developed.
3.2.3

Union Territory of Pondicherry

In the Pondicherry 591 deaths were reported and 74 were reported missing from the districts ofPondicherry and Karaikal.
3.2.3.1 Karaikal
In Karaikal, 484 deaths were reported and 66 missing (sources: UN Country Team India Report,
March 2005). This district was also seriously devastated. A total of 60,697 people were reported
affected in Karaikal District. Around 15,321 houses were damaged and 15,000 people were evacuatedto 22 relief camps, and other administrative buildings. Other damages include: 790 Ha of crops,
3,500 cattle/livestock loss; overall damaged in the District is estimated to be around 270 Crores.
Rescue and relief operations are considered conducted smoothly.
To prevent the outbreak of waterborne and other diseases, the affected population was provided
with safe drinking water and bleaching powder; medical teams were mobilized to meet the needs ofthe relocated population in camps. 2,210 polio vaccines were given to children below 5 years of age;
typhoid vaccination was given to 12,500 persons in affected villages. Food and non food items were
provided to the affected population by the Government and NGOs. Regarding financial support, Rs.
1.00 Lakh of financial assistance was given to the kin of the deceased and another 5,000 Rs has been
given for funeral expenses. Rs. 10,000 of compensation was distributed for damaged houses andproperties for 4,040 families. Trained social workers of various NGOs were engaged in the process oflong term counselling.
The main issue faced during the relief stage mentioned by the District Collector was difficulty in
identifying beneficiaries as well as legal head of the households while assistance distribution. The
District Collector emphasized the importance of establishment of bio fencing or a sea wall along thecoastal line. As he noted, the experience of Tsunami showed that these types of protection do reducethe impact of disaster on livelihoods.
3.2.3.2 Pondicherry
Damages of this district were also severe.
Local officials were quick to react, and displaced residents were housed in well constructedtemporary shelters with proper sanitation and good hygiene conditions. The government identified
the land to relocate affected families beyond 500m from the coastline.

94. Observations
4.1

Response & Preparedness (Contingency plan)
Response and relief activities of Indian governments (national and local) were considered mostly

appropriate overall. However, improvements could be made for enhanced emergency operations.
4.1.1

Response and evacuation

Due to the lack of knowledge about Tsunami disaster, response and evacuation activities weredifficult. Local governments, residents, private companies were all ignorant about Tsunami risk anddisaster response. In addition, no concrete evacuation or response plan was in place prior to the Tsunami
disaster due to the complacency and ignorance of the people to the impending danger. More people
would have been saved if prior cautions had been taken.
4.1.2

Search and rescue

Search and rescue activities seemed to be operated quickly in an organized way in somemunicipalities although there was no guideline or procedure to be followed. (Further research isnecessary to discuss this issue.)On the other hand, search and rescue capabilities were limited, especially at the district level. The
district government had limited specialised rescue equipment and trained rescue personnel. The Central
Government has began training thousands of specialized rescuers with underwater diving capabilities
and are ready to be deployed at short notice to areas of disasters.
4.1.3

Awareness of Tsunami

Awareness of Tsunami was very low among government officials and residents. They had very
limited or no knowledge about Tsunami before the disaster, never having heard of the term “Tsunami”
until hours after the killer waves had hit the shores of India.. After the Tsunami disaster, bothgovernment officials and residents became aware of Tsunami and even scared of it.
4.1.4

Education and training

Before the Tsunami disaster, education and training programmes and systems did not seem to be fully
developed in any region. The importance of education and public awareness about disasters and on what
to do during a disaster can never be emphasised enough.
4.1.5

Early warning system & communication mechanism

There was no early warning system developed before the Tsunami disaster. There was also nocommunication mechanism to disseminate information to residents. At the earthquake on 28 March
2005, although there is no systematic operation, governments tried to warn people using telephones,
mobile phones and loudspeakers.
It was observed that after the Tsunami disaster, an efficient and effective communication system was set
up and information could be conveyed swiftly from the central government all the way down to the villagers.

104.1.6

Activities of aid organization

Many NGOs were very keen to help out in the wake of the disaster and played important roles tosupport recovery of livelihood of people whose houses or properties were damaged. However, thesudden influx of the NGOs proved to be quite handful for the district officials to manage, in addition totheir relief operations. Nonetheless, they were quickly being organised and aid items were delivered towhere they were needed the most.
The activities of NGOs are essential for the recovery of the communities. Their activities vary frombuilding shelters and providing goods to providing financial aids.
4.1.7

Hazard map

Hazard maps had not been developed for Tsunami in most regions because nobody had everanticipated that they would be exposed to such a disaster.
4.1.8

Compensations, subsidies and supplies

Essential supplies and basic healthcare were made easily available to the people for their basic needs
and to prevent the outbreak of any epidemics. Compensations, subsidies and supplies for the properties
damaged and human casualties were provided including money, clothes and daily goods by thegovernments and NGOs.
4.2

Engineering Issues

4.2.1

Design and structure of buildings

Many houses and buildings built near the coastlines did not adhere to the requirements of thebuilding authority in India and not of the design for Tsunami-proof. As building regulations were notstrictly enforced in the rural parts of India, it resulted in many houses being built in a haphazard mannerand also not structurally strong.
4.2.2

Infrastructure (including structural mitigation measures)

There were extensive damages of roads and bridges. Many small villages were only served by asingle road or a single bridge and the destruction of such infrastructure by the Tsunami meant that thesevillages were essentially cut off from the rest of India. The Indian army was mobilised to reconstructtemporary bridges and roads in the shortest time possible to facilitate the flow of aid to the people inthose areas.
Many public buildings including schools were also damaged. Sea walls proved to be effective to
mitigate damages on houses and buildings although many sea walls were damaged.
4.2.3

Lifeline

There were damages to electricity and water supplies in most of the affected areas. Electricity was restoredin early stage in most districts. Water was supplied by tank cars or restored in early stage in most districts.

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4.3

Rehabilitation & Reconstruction

4.3.1

Livelihood restoration (fishery, agriculture, etc.)

State and district officials were assigned to look into and solve the problems faced by the people invarious industries. Main industry of Tsunami victims are fishery and agriculture. As many fishing boats
were damaged, it is now difficult for them to make their living by themselves. It will be necessary toprovide assistance to repair or purchase fishing boats and nets for the rehabilitation of livelihood offisherman and a scheme was developed. Agricultural land and livestock were also damaged. Agriculturalland can not be used for at least three years due to the sea water. Alternative source of income needs tobe found for victims who were engaged in agriculture.
4.3.2

Temporary / intermediate shelters and housing

Temporary shelters were constructed very quickly by both the governments and NGO’s for a large
number of the affected people. As temporary shelters were built by different organizations rapidly, there
is no uniform design and quality control. Prior to the construction of such shelters, schools and othergovernment buildings were used as temporary shelters.
4.3.3

Relocation & reconstruction of permanent housing

The Indian government took the opportunity to enforce and ensure the compliance of building codes
and introduced a scheme to provide houses to the people who were willing to stay 200m away from thesea. Government launched a policy that permanent houses within 200m from the coastlines will
principally be relocated to safer places. Damaged houses reconstructed on the land acquired by thegovernments beyond 200m from the coastlines are provided subsidy by NGOs or governments.
4.3.4

Health and mental care

Great emphasis was placed on health and mental care. A large number of doctors were despatched tothe affected areas to treat the injured, help maintain the basic level of hygiene and prevent the outbreakof any epidemics. Counsellors were also brought in to talk to the distraught and help them manage theemotional trauma of losing loved ones and coping with the aftermath of such a massive disaster.
As most of the affected people fall in poverty class, they cannot afford to pay heal care fees bythemselves. They depend on health care services provided by NGO groups.
4.3.5

Vulnerable people (women, children, elderly people)

Women, children and elderly people suffered from the disaster, and many casualties were foundamong those vulnerable people. Vulnerable groups were identified by the government and special care
was rendered to them so that they will not be left out in the cold or exploited by the unscrupulous in thewake of the disaster.

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4.4

Comprehensive approach to disaster risk reduction

4.4.1

Risk and vulnerability assessment

No risk and vulnerability assessment on Tsunami was carried out prior to the Tsunami. For
earthquake, cyclone and flood, result of risk and vulnerability assessment was conducted but the result
has not been effectively used for disaster management planning. Identifying and helping the high risk
and vulnerable groups helps reduce the adverse effects of disasters.
4.4.2

Information management

There was no organized system to collect, classify, and disseminate information at local government
level. An effective information sharing and communication system would help ensure that criticalinformation is transferred to and understood at all levels
4.4.3

Development plan (including land use planning and management)

Not many local governments had a master plan or comprehensive development plan for development
planning. A few municipalities developed a land use plan and development plan although they are notcomprehensive.
In most local governments, land use within 200m from the coastlines was restricted only after the
Tsunami disaster. Land use regulation partly responds to the national coastal law that require theregulation of land use within 500m from coastlines.
A master plan for development should be drawn up to set aside eco belts along the coast for shielding
purposes and designating proper areas for residential and agricultural use that would reduce the damage
caused by any similar disasters in future.
4.4.4

Enforcement of standards and regulations

Regulation on use of land was not enforced strictly either although most of the district governments
restricted the use of land near the coastlines after the Tsunami disaster.
The authorities should play a more proactive role in enforcing the building codes and taking action
against defaulters. Construction process of earthquake, cyclone and tsunami proof design houses should
be monitored.
4.4.5

Community empowerment

NGOs play important roles to empower communities resilient to disasters. Efforts of thegovernments to develop plans or programmes to raise awareness of people towards disaster or provide
information and technology need to be improved. It is worthwhile to note that the communities
themselves rallied and formed self-help groups and vigilantes to better prepare themselves for futuredisasters.

13

4.5

Experiences in the wake of Tsunami warning on 28 March 2005 due to M8.2 earthquake
The experience of Tsunami of December 2004 has definitely raised the awareness of the population as

well as the government officials involved in disaster management about this particular disaster. As soon as
an earthquake warning has been received from Delhi on 28 March 2005, all the villages in the coastal line
were informed about the warning and massive evacuation of people started although the system has notbeen well developed. The local population took the warning seriously and readily evacuated from theirhouses swiftly and in an orderly manner. Government officials were also quick to open up schools andpublic buildings as evacuation sites.
5. Recommendations of the Mission
Based on the interactions with Government officials and observations of the affected areas, the following
major recommendations can be drawn:
5.1

Response & Preparedness (Contingency plan)

5.1.1

Response and evacuation

A comprehensive contingency plan, with local, state, national and international resource allocation,must be put in place and proper communication with the villagers established in order to achieve asmooth and swift evacuation in times of emergencies Shelters or places for the evacuation should beplanned in advance and training needs to be conducted. The management of logistics, human resources
and information should be improved by developing a system and guidelines for efficient and effective
emergency operations.
5.1.2

Search and rescue

Preparation is necessary for search and rescue operation including training of experts and preparationof instruments.
The response time for search and rescue is the most critical factor and the survival rates dwindle astime passes from the time of incident. It is crucial to get the rescuers to the disaster site in the soonest
possible time so as to increase the chances to save survivors.
5.1.3

Awareness of Tsunami

Public education and awareness are of utmost importance. Education of the masses on theprocedures to take when faced with an emergency helps to greatly reduce fatalities.
After the 2004 off Sumatra earthquake almost all residents who suffered any kind of damage know
the word ‘Tsunami’ and have learned that there might be a possibility of being attacked by destructive
tidal waves after a large earthquake. The majority of people living along coastal area are well aware of
Tsunami at present, and the fact that the evacuation against the 2005 March earthquake off Sumatra was
successfully and smoothly conducted proves the awareness of Tsunami among residents. So the firststage of awareness of Tsunami is achieved through the actual experience of Tsunami. What is important14

in the next stage is to keep the awareness of Tsunami through long years beyond generations that may
be more difficult to achieve than the first stage. To keep the knowledge of Tsunami continuous efforts ofeducation and training are crucial.
5.1.4

Education and training

Education and training for Tsunami disaster are necessary for government officials and residents.
Proper education and training of the public will help them to be aware of what to do in times of
emergency. Wide range of educational materials including video films, posters, booklets, visual signs etc.
should be published and installed in coastal areas and islands at most risk.
5.1.5

Early warning system & communication mechanism

Taking into consideration the regional features of South Asian countries of Indian Ocean basin andthe level of seismic and tsunami hazard, a comprehensive and people-centred Regional Early Warning
System should be created and operated.
It is very important to develop a mechanism to collect and disseminate the detailed and accurate
information about the size (height) and arrival time of Tsunami. False alarm or Tsunami attack without
alarm make people distrust the Tsunami warning system which results in the inappropriate reaction ofpeople even if they receive a warning. Tsunami height at each location differs depending on manyfactors, for example, Tsunami source estimation, wave length of Tsunami, bathymetric conditions,direction of Tsunami propagation, and so on. Once the warning system is constructed, it is necessary tocheck the reliability of the system. One of the methods to check the warning system is to compare theactual data and predicted values.
The Tsunami data of the 2004 Sumatra event observed at various locations are very valuable because
they can be a key to check the Tsunami warning system that will be constructed in the near future.
Therefore, to make a database of observed Tsunami, for example, the Tsunami height at many positions,maximum run-up locations, velocity of Tsunami water, arrival time of Tsunami, the first motion of
Tsunami, etc. is crucial. It is also important to share the data internationally among the scientists orengineers in order to improve the warning system. Such a database is valuable also for making thehazard map.
Considering the fact that Tsunami is triggered by large scale submarine earthquakes, and some of
Armenian NSSP (National Survey for Seismic Protection) seismological stations are incorporated into
IRIS and CTBTO global observation networks and register any earthquake on the Earth with highaccuracy in real time, it was suggested to use the NSSP stations for Early Warning System of Indian
Ocean basin countries.
5.1.6

Activities of aid organization

With many aid organizations coming forward, the challenge is to coordinate their efforts to ensure
minimal wastage and maximum aid received by the affected.

15

5.1.7

Hazard map

Hazard map needs to be developed, to be distributed to public and to be used in disaster management
planning. However, it will need the national and international efforts to develop Tsunami hazard maps.
High risk areas should be properly identified on these hazard maps and particular attention should be
paid to the building controls in these areas. Up-to-date Geographical Information Systems (GIS)
technology is necessary to develop accurate hazard maps.
In Japan, Tsunami hazard maps are made by national government. The resolution of the maps are notso fine, but enough to overview the attack area of Tsunami. The maps are made for every local coastline
and consist of several set of maps corresponding to Tsunami height that will be informed in the Tsunami
warning issued by JMA (Japan Meteorological Agency). They are useful for residents to be aware of thepossibility of Tsunami attack and make an evacuation plan. Therefore it is highly recommended to make
Tsunami hazard maps for all countries where have possibility of being attacked by large Tsunamis.
Urban development should be based on hazard and risk maps, and special Tsunami related building
codes, and housing would be made of reliable building materials.
5.1.8

Compensations, subsidies and supplies

Proper records of the population should be kept to facilitate compensations, subsidies and supplies tothose genuinely affected by the disaster and to avoid aid lending into wrong hands.
5.2

Engineering Issues

5.2.1

Design and structure of buildings

Earthquake, cyclone and Tsunami proof design of the buildings should be developed. It will be
important that buildings are constructed following the details of the design plan. (There is a need forfurther study to investigate the quality of building construction of India)
Not much damage was observed beyond 500 meters away from the ocean. It was also reported thathouses made of bricks and concrete with firm foundation proved to be resistant to the damage. Thismeans that building codes regulations and coastal zone regulations should be enforced.
5.2.2

Infrastructure (including structural mitigation measures)Construction of sea walls in all the coastlines will be expensive. However, there were evidences ofthe effectiveness of sea walls to mitigate damages. It will be suggested to construct sea walls where
houses are densely built. Greenbelt, such as plantation of mangrove trees should be also considered
together with sea walls. Coastal area should be protected by the sea wall or bio fencing, which proved toreduce the impact of Tsunami.
Key access roads and other infrastructure should be made more disaster resistant to avoid entire
communities from being crippled and cut off from the rest of India in the event of such disasters.
5.2.3

Lifeline

Restoration of lifeline was operated in early stage.

16

5.3

Rehabilitation & Reconstruction
Rehabilitation and reconstruction process provides a good opportunity to build disaster resilient

community.
5.3.1

Livelihood restoration (Fishery, Agriculture, Industry, etc.)

In rehabilitation and reconstruction of livelihood of victims, sources of income have to be
re-established quickly. Damaged fishing boats and nets needs to be repaired or replaced for the
rehabilitation of fishery. If the budget is available, governments and NGO groups can provide subsidy
for them. If the financial aid for each individual is difficult, subsidy for fishing boats fisherman canshare is suggested for the early rehabilitation. One alternative is to provide appliances, such as fishingboats, to the community, not to individuals, to share them in the community. For agricultural landdamages, governments need to provide alternative income source until agricultural land are restored.
5.3.2

Temporary / intermediate shelters and housing

Although quality of temporary shelters varies, enough quantity of temporary shelters was provided.
5.3.3

Relocation & reconstruction of permanent housing

It will be effective mitigation countermeasure for Tsunami or cyclone, if governments can
successfully relocate houses 500m beyond coastlines. It will depend on how much governments can
support reconstruction of housing financially.
5.3.4

Health and mental care

The emotional needs of the victims must be given top priority.
5.3.5

Vulnerable people (women, children, elderly people)

This vulnerable group of people have to be given extra attention as they are incapable of taking careof themselves and are also at risk of falling prey to opportunists who may exploit them and cause themeven more sufferings.
5.4

Comprehensive approach to disaster risk reduction

5.4.1

Risk and vulnerability assessment

Risk assessment of the community towards disasters is important for disaster management planning
to prepare for and mitigate disaster. National government should support providing the guideline for risk
and vulnerability assessment method that local government can manage.
In addition, an accurate risk and vulnerability assessment will help ensure that resources areadequate and efficiently committed to areas where they are needed the most.
Following the Armenian NSSP example it is essential to organize the special multi-disciplinary
regional Task Force Team comprised of experienced specialists. Such a team would assess the risk leveland make recommendations on forthcoming activities in case of disaster hazard. It is evident that the17major earthquake (M= 9.0) would, with high probability, trigger the devastating Tsunami, and Task
Force Team would warn about Tsunami and provide Tsunami counter-measures to avoid the tragic
consequences.
5.4.2

Information management

An effective information management will help ensure that crucial information is being transmitted
to the stakeholders in a timely fashion.
Development of information management system is recommended. It is important to plan themechanism how to collect data, organize data and disseminate information. Computer database is analternative for organizing data although emergency electricity should be prepared to use the computer
system under the emergency like power cut.
5.4.3

Development plan (including land use planning and management)

It is highly recommend developing a land use plan based on risk assessment. Use of land should bemanaged based on land use plan that determines the city design and location of infrastructure andhousing development. Land use planning can mitigate disasters in the long term.
5.4.4

Enforcement of standards and regulations

Strict enforcement of standards and regulations has to be carried out regularly to ensure that building
codes are being strictly adhered to.
Monitoring is important for the strict enforcement of standards and regulations.
5.4.5

Community empowerment

Due to the rareness of Tsunami event in the region and lack of Tsunami hazard and related risk
assessment, the population and, in some cases the local authorities were not expecting Tsunami disaster.
However, local authorities provided swift and responsible measures and arranged the temporary shelters
and relevant drinking water, food and sanitation for affected people. We were impressed by the vitalityof affected people and relentless hope and belief that they are not alone in their hardship, and local
authorities did their most to help them. Their hope is empowered by rapid humanitarian assistance ofinternational community.
The followings should be considered for community empowerment;
1. Enhancement of pubic awareness to all hazards at all levels;
2. Strengthening of preparedness at all levels (mock drills, training for the staff, etc.);
3. Establishment of an early warning system and a mechanism for its implementation;
4. Communication system which provides immediate information exchange daily and in times ofdisaster should be in place (down to the village level);
5. Developing eco-fencing along the coastline and other types of protection;
6. Sustainable efforts to build the capacity for disaster mitigation at all levels;18

7. To develop a mechanism for proper identification of beneficiaries and distribution of relief aftera disaster;
8. To develop and maintain a common contingency plan on the district level, which would help
identify response capacities within each entity active in the area (government and NGOs) and tobe utilized at times of disaster;
9. Disaster preparedness and response plans should be in place down to community level(should include evacuation plan, shared duties of community members, etc.);
6. Conclusion
All the members of the delegation brought home many invaluable lessons learnt from the Indian
government in the management of disasters. The multi-national mission also provided the opportunity forthe members of the delegation from ADRC member countries to interact and learn about the disastermanagement systems in their respective countries.
A comprehensive, exercised response plan coupled with well established links amongst the central
government, local authorities and communities would help minimise the impact of disaster and restore life
back to normalcy in the shortest possible time.

**************For more information:
Asian Disaster Reduction Center (ADRC)
1-5-2-5F Wakinohamakaigan-doriChuo-ku, Kobe 651-0073 Japan
Tel: +81-78-262-5540, Fax: +81-78-262-5546
E-mail: rep@adrc.or.jp

19Annex I

Preliminary Report by the Multi-national Mission
to Tsunami Affected Areas in India (8-13 April 2005)
Report Format•

IntroductionoPlaces visitedo

Methodology•

Objectives•

Observations•

Recommendations•

Acknowledgement•

Members of the Mission

Introduction
The Multi-national Mission to tsunami affected areas in India led by the Asian Disaster Reduction Center(ADRC) based in Kobe, Japan was conducted from April 8-13, 2005. The members of the Mission were fromArmenia, India, Japan, Singapore, Sri Lanka, Tajikistan and ADRC. Representatives from France and USA
joined the Mission in the activities in New Delhi. Detailed list of the members of the Mission is attached inannexure I.
The Mission visited the severely affected districts of Kollam and Alleppey in Kerala, Kanyakumari,
Nagapattinam, Cuddalore, Kancheepuram and Chennai in Tamil Nadu and Karaikal and Pondicherry
divisions of Union Territory of Pondicherry. Detailed tour programme of the Mission is attached at annexureII.
The methodology adopted by the Mission during the visit include to meet the officials at•••

National levelo

NDM division, Ministry of Home Affairs

o

NIDM

State and UT leveloRelief CommissionersoOSD (Relief & Rehabilitation)oOther officials

District leveloDistrict Collectors and other district level officialsoSub-division and block level officials

20

After meeting the officials, the Mission visited the severely affected villages and interacted with the affected
communities. Preliminary discussions with officials on tsunami experience in their district prior to visiting
the affected areas were very useful in providing insight about the affected communities, activities on
response and relief operations, etc.
Objectives
Mission had the following objectives:
1. to learn the lessons from Tsunami disaster2. to develop a road map for mitigating the disaster3. to provide knowledge and expertise for reconstruction and rehabilitation for disaster affected areas,and4. to learn about changes/reforms planned to be undertaken by the local and central governments in
disaster management system following the tsunami experience.
Observations
After visiting the tsunami affected areas, the Mission has following observations.
Lack of:•awareness at all levels about disasters and disaster management in general, tsunami in particular•preparedness at all levels about disasters and disaster management in general, tsunami in particular•

early warning system for tsunami•

implementation of norms and regulations (including Coastal Zone Regulation (CRZ) norms,
building codes and byelaws)•

hazard, vulnerability and risk assessment for disaster management•

appropriate database for disaster mitigation•

holistic approach towards disaster mitigation and management•

sufficient plantation along the coast•

proper mechanism to identify the beneficiaries

Positive observations regarding the activities carried out by all the stakeholders (governments, NGOs,
communities, corporate sector, etc.):•

Good response afterwards after initial confusion•

Coordinated efforts involving all the stakeholders•

Enhanced awareness was observed in response to the tsunami warning on 28 March 2005 (due to
Sumatra earthquake)•

Tsunami disaster is considered to be an opportunity for improving disaster risk management

21

Recommendations (drawn by the Mission as well as the relief commissioners and district collectors)
Mission recommends the following•

Enhancement of pubic awareness to all hazards•

Strengthening of preparedness at all levels•

Establishment of an early warning system and a mechanism for its implementation•

Communication system, which enables immediate information exchange daily and in times ofdisaster, should be in place.

•

Redefining of the CRZ norms with practical approach•

Structural measures to be taken up which may withstand the tsunami•

Developing eco-fencing along the coastline•

Sustainable efforts to build the capacity for disaster mitigation at all levels•

To develop a mechanism for proper identification and distribution of relief after a disaster•To develop and maintain a contingency plan at the district level, which would help identify response
capacities within each entity active in the area (government and NGOs) and to be utilized at times ofdisaster•Development of appropriate database necessary for disaster mitigation up to village level•

Incorporation of comprehensive disaster risk management in the local development plan

Acknowledgement
The Mission is grateful to:•

Government of India•

State & UT Governments•

District Administration•

ADRC Member Countries and Advisor Countries

13/04/05/Delhi/ADRC

22

Annex II
Schedule
Multi-national mission to tsunami affected areas of India
Tamil Nadu, Pondicherry, Kerala and Chennai
8 - 13 April 2005

Date

7
Apr

Day

Departure
/Stay

Thu

Time

PM

Arrival/VisitsTime

Arrival at Delhi

Accommodation

Transportation

Delhi (The Park)

Visit to Ministry of Home Affairs
8
Apr

AM
Fri

Delhi

(MoHA) and National Institute forTransfer by coachDisaster Management (NIDM)
PM

Visit to UNDP

08:00

Arrival at Trivandrum

Delhi (The Park)

Leave
Delhi
9
Apr

(JET
Sat

9W336)PM

AM
KeralaApr

Transfer by coach

Airways

Kerala10

Hotel→Airport (Delhi)

12:40

PM

Sun

Visit to tsunami affected villages
in Kerala

Trivandrum

Transfer by coach

Visit to tsunami affected villages
in Kerala
Transfer by coach

Visit to tsunami affected villages
in Kanniyakumari

Trivandrum

Leave
Trivandru
m (Indian
11
Apr

Mon

03:30

Arrival at Tiruchirapalli

04:20

Tiruchchirappalli

Airport (Tiruchirapalli)→ HotelTransfer by coach

Airlines
IC968)
Tamil
Nadu

AM

Visit to tsunami affected villages
in Nagappattinam

Transfer by coach

23

PM

AM
Tamil
Nadu
12
Apr

Tue

PM

Visit to tsunami affected villagesin Cuddalore, Pondicherry

Pondicherry

Visit to tsunami affected villages
on the way to Chennai
Visit to tsunami affected villages
in Chennai

Transfer by coach
Chennai

Leave
Chennai(Indian

20:00

Arrival at Delhi

AM

Report to MoHA

Airlines

22:30

Delhi

Airport (Delhi)→Hotel
Transfer by coachIC802)

13
Apr

Wed

Delhi
PM

Hotel→MoHA
Transfer by coachFree
Departure from Delhi

24