Disaster Management in India
By
Shyam Sunder
Senior Economic Investigator
Disaster Management Division
Ministry of Home Affairs
Government of India

Country and Climate
z Area: 3.2 million Sq.kms-7th
largestcountry in the world
z Common border with
Afghanistan,Pakistan,z China,Bhutan,Nepal, Myanmar and
Bangladesh.

1

Country and Climatez Climate :Four seasons– Winter, Summer, Rainy and Autumn

seasonCountry and Climatez Population: over 1100 millionz Average population density:about 300

persons per Sq.km
z Literacy rate: 53.00 percent

2

Country and Climatez Urbanization :about 26 percent
z Administrative Set Up:z 28 States and 7 Union Territories
z District Collectorsz Tehsils/Blocks
z Villages

VULNERABILITY TO
NATURAL DISASTERSz India vulnerable to major disasters offloods,cyclones,drought and earthquakes
z 40 million hectares prone to floods
z 68% area vulnerable to droughtz About 60% of the landmass is prone toearthquakes of various intensities
z About 8% of the total area is prone to cyclones
z Hailstorm,landslides,avalanches fire too occur
frequently

3EARTHQUAKE ZONING MAPzzz

27 earthquakes of 5.0
magnitude or more
between 1819 to2001(10 of between
7and above)
Largest magnitude of 8.7
in 1897(Assam) and 8.6
in (Assam) 1950
Rivers changed theircourses,groundelevations got changed
and stones were thrown
upwardCYCLONE HAZARD MAP
z 1891-1990: 262

cyclones (92 severe)in
50 KM wide strip on
the East Coastz Less severe cyclonicactivities on West
Coast(33 cyclones)

4

FLOOD HAZARD MAPz

About 80% of annual
rainfall received

within fourmonths(JuneSeptember)z On an average 8.0
million hectares
affectedz 40 million hectares
area prone to floods,
over 14 million
hectares protected

EXETNT OF DAMGE AND
DESTRUCTION(average annual during
1990-2000)z Human loss-4344
z Cropped area affected- 1.42 million

hectares.
z Number of houses damaged : 2.36
million5

Disaster Management Division
Responsibilities:zDisaster Management and Mitigation
Crisis Management
NBC Preparedness
Civil Defence

RESPONSE MECHANISMz Basic responsibility of State Governmentsz Union Government supplements the efforts

by extending logistics and financial support
as well as coordinate efforts at national andinternational levels

6

MANAGEMENT MECHANISMz Integrated Administrative machineryz National Contingency Action Plan-identifies roleof different players
z Ministry of Home Affairs – nodal ministryz Central Relief Commissioner – Chief Nodal
Officerz State/District Contingency Plans and Relief
Manuals/codes which identify that the role of each
officer in the state for managing the natural
disasters.

NATURAL DISASTER RESPONE–
UNION GOVERNMENT LEVELz National Crises Management Committee

under Cabinet Secretaryz Crises Management Committee under CRC
z Group of Ministers, Task Forces, Group of
Secretaries and High Level Committees –Need based

7

CABINETCABINET COMMITTEEPRIME MINISTERNCMC

CABINETSECRETARYSECRETARY
TO P.M.

HOME
MINISTERSECRETARY (MHA)
NATIONAL
EMERGENCY
MANAGEMENTAUTHORITYCENTRALMIN.

CENTRAL RELIEFCOMMISSIONER &DISASTER MANAGEMENTDIVISION
IMD

CWC

NRSA

STATES &UTs

ORGANIZATIONAL SETUP

NATURAL DISASTER RESPONSESTATE LEVELz State Cabinetz States Crises Management Group-

headed by Chief Secretaryz Relief Commissioner-State Nodal Officerz District Collector- the key role player

8

FINANCIAL ARRANGEMENTSz Based on recommendations of FinanceCommission- Constituted after every fiveyears
z Calamity Relief Fund (CRF) for each StateAllocation for 2000-05 Rs.110,075 million
against Rs.63042 million for 1995-2000
z Additional assistance from National Calamity
Contingency Fund-need based- for severe
calamity

RECENT MAJOR DISASTERSz Super Cyclone – October, 1999-Orissaz Human live lost:8913
z Population affected: 18.97 millionz Houses damaged:
02.03 million
z Livestock perished: 00.44 millionz Trees felled:
90.00 million
z Cropped area affected: 01.84 millionz School buildings damaged :13443

9

RECENT MAJOR DISASTERSCONTD.
Relief and Rehabilitation work is overReconstruction work is going on(School-cumcyclone Shelters, HealthInstitutions,Houses,Buildings)
DFID and World Bank assisting (School buildings,
supply of essential drugs,livelihood
restoration,lift irrigation point rehabilitation
project,Road work,water supply )Today Orissa is observing the fifth anniversary of
the horrific super cyclone that struck its coast
on 29.10.1999.

A view of cyclone
formation/eye

10

11

Pulllng out bodies fromlakes

Linemen repairing snapped wires

Thached house
being repaired

12Residents constructing their house withmutual help

Boatman making
brisk business

RECENT MAJOR DISASTERSCONTD
z Gujarat earthquake – 26th January, 2001z Human Lives lost : 13805
z Persons injured :20,747
z Villages affected: 7633
z Houses affected: 1.2 million
z Loss to public andPrivate properties : Rs. 150,000 million

13

RECENT MAJORDISASTERSz Gujarat Earthquake-2001-contd.
z Emergency relief work completed
z Process of reconstruction andrehabilitation work has almost
completed

A view of temple : Lakpatiji’s Chhatardi before and after earthquake of 26th January,200114

A student body in Ahmedabad School after earthquake

Rescue of 2 years old child15

Cracks on the Bhuj-Ahmedabad RoadA view of destroyed building in Bhuj

16

Swami Narayan School

Jalasmriti
Apartments17Collapsed multi-storeyed building

Swiss teamrescuing elderly
woman

18

Russian teamrescuing elderly
woman

Restarting
Restarting
livelihood
livlie19

Restarting livelihood

Natural Disaster
Managementz Subject (except Drought and Epidemics)

transferred to MHA from Ministry ofAgriculture (Earlier nodal Ministry) in
June, 200220

After transferred of work Initiatives taken by the
Ministry of Home Affairs
in the field of Disaster
Management

National Roadmap for Disaster
Management

 A National Roadmap for Disaster Management

drawn up - Action being taken in accordancewith the Roadmap. The roadmap covers
institutional
mechanisms,
mitigation/
prevention measures, legal/policy framework,
preparedness and response, early warning
systems, human resource development,
capacity building.
 Copy of the Roadmap has been sent to all theStates with the advice to draw up similarroadmaps

21Institutional mechanismsz

A National Emergency Management Authority[NEMA] being set up at the national level-Committeeof Secretaries have recommended the proposal—
being submitted to Home Minister for approval
before submission to Cabinet, after obtaining
comments of relevant Ministries¥Departments.
z Departments of Relief and Rehabilitation in States tobe converted
into Departments of Disaster
Management with wider Terms of Reference toinclude mitigation and vulnerability reduction.
– 11 States/UTs – have carried out this change.

Institutional mechanisms(Contd.)zStates also asked to set up Disaster Management
Authorities with the Chief Minister as the Head andMinisters of relevant Ministries/Departments as
Members.
–

11 states/UTs- have constituted Disaster Management
Authorities. Other States are in the process of setting up
these Authorities.

22

Policyz

A National Policy on Disaster Mitigation
and Prevention drafted- modifications
suggested by Home Minister-revised draft
drawn up-in process for inter-ministerial
consultations.

zStates also being pursued to have DM
policies in place.
Madhya Pradesh,
Gujarat already have policies. Other
States in the process.

Legal Frameworkz States advised to adopt Disaster Management

Acts-Gujarat has enacted the Act. Other States
are in the process.
z Relief

Codes being changed into Disaster
Management Codes by including aspects of
prevention, reduction and preparedness. States
have set up committees for the purpose.

23

Financingz

Terms of Reference of the Twelfth FinanceCommission changed to mandate that the
Finance Commission looks at the entire
cycle of disaster management and not only
relief and rehabilitation.

z

Memorandum drafted in consultation with
States, sent to the Finance Commission
includes creation of Disaster Mitigation
Fund of Rs.100,000 Millions).

Regional Response Centers(RRCs)– Regional Response Centers (RRCs)

being set up – 14 Regional Response
Centers have been identified withapproval of Steering Committee.
These Centers will have caches ofequipment, boats etc. and assistanceto neighboring States will be
providedfromtheseRegional
Response Centers.

24

Response Systems (Contd.)zCreation of capabilities in States:–––

States asked to designate a Training Center andprocure Training equipment
Central Government will provide Training ofTrainers
15 States initiated action

Provision made in the CRF that 10% of the annual
allocation can be used for purchase of:––

Search and Rescue equipment
Communication equipment

Project for strengthening of
emergency and fire servicesz

Project drawn up to convert Fire Services into
all hazard response units at a cost of Rs.
24570 Million over five years.

z

Equipping and training of fire services forcarrying out search and rescue in all types ofdisasters.

25

Incident Command System(ICS)z

In order to professionalize the management ofresponse,
Incident
Command
Systembeing
introduced. This system provides for specialist
incident
command
teams
with
an
incident
Commander and officers trained in different aspects
of incident managementz

LBSNAA, Mussoorrie identified as the Core Training
Institution.

z

Curriculum and training of trainers being undertaken
in collaboration with United States.

National Emergency Operations
CentrezPresent control room strengthened– 5 on-site emergency coordination
kits with SATPHONES, GPS, Laptops,–zComputers, VHF sets, emergency lights etc.
Regular drills with State Emergency
Operations Centre (EOCs) being organizedState-of-the-art National EOC with superior
structural features and communication
facilities to be set up (underground)–

To be commissioned by June 200626

Emergency Operations Centers(Contd.)zStates being assisted to set up Control
Rooms at the State level as well as at districtlevel –standard design and layouts for Stateand District EOCs shared with all States/Uts

z States also being assisted under the GOI-

UNDP project to set up Control rooms to
be completed by March 2006

Emergency Support FunctionPlansz

The relevant departments/agencies havebeen asked to draw up ESF Plans andconstitute response teams and designate
resources in advance so that response is
not delayed. ESF Plans have been
receivedfromeight
Ministries/
Departments. States have also been asked
to take similar steps.

27Pre-Contractsz Inanemergency/crisis,
theprocurement procedures cause delays.
States asked to identify criticalrequirements and enter into precontracts. Response received from six
States indicating the action being
taken

Disaster Management
Programmez Under the Disaster Risk management

Programme, Multi hazard pronez States being assisted to draw up
z Disaster Management Plans at State,z District and Block levels.

28

Disaster Risk Management Programme[UNDP assisted]z

Awareness generation, community preparedness
planning and capacity building initiated in 169 districtsin 17 multi-hazard-prone States

National Core Group for Earthquake
Mitigation constituted
z
z
•
•
•

This Group has eminent national experts andresource institutions as Members.
Training of Rural Masons includes:
Drawing up a strategy and plan of action for
mitigating the impact of earthquakes
Development of handbook/pamphlets/typedesigns for earthquake resistant construction
Evolve systems for training of Municipal
Engineers as also practicing Architects andEngineers in the salient features of the BIS
Codes and the amended bye laws

29

Earthquake Risk Mitigation
Projectz

To cover 229 districts in 21 States in seismic zones
IV and V (project cost Rs 10390 Million)
–
–
–
–
–

z

Putting techno-legal regime in place.
Capacity building/training of engineers/masons etc.
Awareness through technology demonstration.
Retrofitting of life line buildings and public utilities.
Formulation of preparedness and response plans.

The modalities for mobilisation of resources are being
finalized in consultation with Department of Economic
Affairs.

Techno-legal regime and Capacity
building for its compliance

Working with States in seismic zones III, IV and V forincorporating the BIS Codes in the Building Byelaws.

zModel Building Bye-laws and Development
Control Regulations have been finalized by aCommittee of Expertsz

In the process of being shared with the State
Governments.

30

Techno-legal regime andCapacity building for compliance[contd.]z

Assistance to States for training of engineers /architects / masons–

National Programme for Capacity Building inEarthquake Risk Mitigation for training of 10,000
engineers—z Approved and under implementation (project cost Rs.
123.60 Million)z 11 National Resource Institutions (NRIs) identified
z State Resource Institutions and Faculty Members
being nominated by the State Govts for their training
at NRIs

Techno-legal regime andCapacity building for compliance[contd.]zzzzNational Programme for Capacity Building ofArchitects in earthquake risk managementassistance to States to train 10,000 architects –project has been approved with an outlay of Rs.
45.10 Million
Five National Resource Institutes identified
States being addressed to identify State
Resource Institutes.
National Programme for Capacity Building ofMasons in Earthquake Risk Mitigation—
assistance to States to train 30,000 masons -project being formulated31

Earthquake safety of lifeline buildings andcritical infrastructurez

Steps initiated for examination of the structuralsafety of life-line buildings from the seismic pointof view. Home Secretary has written to Secretary,
Civil Aviation [for airports and control towers] andother Ministry issued instruction to the concerned
agencies.

z

Air Port Authority of India has confirmed that all
Airport control Towers and Terminal buildings are inconformity/compliance with Earthquake resistantdesigns. Architects of Indian Institute to ensurecompliance of Airport Control Towers and Terminalbuildings with revised BIS norms and undertake
retrofitting measures wherever required.

Accelerated urban earthquake safetyz

38 cities with a population of over half a million in seismic zones III, IV
and V taken up for focussed attention as regards earthquake mitigation.

38 City consultations with all stakeholders organized
Awareness generation programme initiated in all cities
Information, education and communication materials
developed in local languages– Review of existing techno-legal regime and its complianceinitiated– Training of architects and engineers started in association
with I.I.Ts– 778 Engineers and 220 Architects trained.
–
–
–

32

UrbanEarthquake
Vulnerability
Reduction
Programme

Cyclone Monitoring and Mitigation
Groupz

Training of Rural include:
–
–
–
–

z

Strengthening mechanisms for tracking and monitoring thecyclonic system
Warning protocols for cyclones
Suitable mechanism for providing warning in respect of local
cyclonic/weather systems
Coordination mechanism between different Central and State
Ministries/ Departments/ Organisations, regarding Cyclone
mitigation measures required for the coastal States.

The current protocols have been reviewed.

33

Forecasting
Under GOIGOI-USAID project, subsub-project initiatedfor strengthening of climate forecasting system
z The following five sub-projects approved for study andtechnology transfer:– Tropical cyclone forecasting and warning– Severe storms (including flash floods)– Extreme temperatures– Flood forecasting– Forecast Communicationsz IMD, CWC and National Centre for Medium Range
Weather Forecast & NRSA will be technical agencies towork in cooperation with agencies of US Govt. – USGS,NOAASpecial Focus on NE Statesz Resource person for Disaster Management

provided to North Eastern Council.
z With MHA assistance, NEC have drawn up
Action Plan for discussion in the next
governing body meeting.
z Assistance being provided to NE States fordevelopment of State Road Maps, DM Plans,
DM Codes.
z 210 Master Trainers from the region trainedin Disaster Management in NE region.

34

Human Resource
DevelopmentzzNational
InstituteofDisasterManagement [NIDM] asked to preparea National HRD Plan for Disaster
Management-this will be ready by
December 2004
29 DM faculties being supported by
MHA in 28 State Administrative
Training Institutes/State Institute of
Rural Developments

Disaster risk mitigation
technologies in technicaleducationz

Earthquake engineering currently not a part of UG engineering courses as a resultof which ensuring seismically safe construction is difficult. Curriculum forinclusion of earthquake engineering for UG Engineering course drawn up in
consultation with IIT, Kanpur and All India Council of Technical Education(AICTE)— has been shared with AICTE & State Governments-expected to be
introduced by engineering colleges from 2005-2006

z

Model Earthquake engineering curriculum for UG Architecture courses finalized inconsultation with Council of Architect (COA), Indian Institute of Architect (IIA)
and experts—has been shared with COA & States-expected to be introduced in theArchitecture courses from 2005-2006z

Regional Technical workshops for integration of the modules in curricula beingorganized by AICTE/COA

35

Emergency health management
in medical educationz
zz

Discussion initiated with Ministry of Health &Family Welfare and Medical Council of India
Two Committees with representation from all
resource institutions in the Country constituted fordevelopment of:– Curriculum for emergency health management in
MBBS– Training module for in-service Health Managers
in Emergency Health Management
Rajiv Gandhi University of Health Sciences(RGUHS)-Karnataka, identified as lead national
resource institution

Disaster Management in
Public Educationz

Disaster management introduced in Central Board of
Secondary Education (CBSE) school curriculum for Std
VIII[2003] and IX[2004], work in progress for Std X.

z

States advised to include DM in school curriculum –manyStates have initiated the process—Gujarat, Assam, Orissa,
Bihar, Tamilnadu, Mizoram.

z

Working with Council of Board of School Education(COBSE) to facilitate inclusion of disaster management inpublic education in all 39 School Boards in India

36

Working with partner
Ministries/Departments (Contd.)z Working with MoRD for:– Amendmentof existing guidelines toincorporate essential cyclone/ earthquake
resistant features in constructions under theschemes.

– Publicize disaster resistant design features– Organize training programmes for block

officers, engineers and VLWs.

Working with partner
Ministries/Departmentsz Working with Ministry of Environment andForest to
Lay down a time table for review and rehearsals of onsite and off-site response plans of hazardous industries
under District Collectors– once in a year
– Mandate wide awareness generation by industries
handling hazardous material regarding possible hazards tothe population in the vicinity – and the mitigation
measures/antidotes/do’s and don’ts–zMinistry of Environment and Forests have issued
i t i t ti
t th St t
Th

37

UNION OF INDIARESPONSE TO MAJORDISASTERSz Immediate Policy decisionsz Single authority for clearancesz Finances-no constraint
z Bureaucratic procedures simplified
z Red tape given a go awayz Resource pooled and channelised

UNION OF INDIA RESPONSE
TO MAJOR DISASTERSz National resources at the disposal of theState Governmentz Necessary exemptions given to accelerate
rescue and reliefz International assistance offered was
accepted with gratitudez Well coordinated responses/efforts

38

ONGOING INITIATES IN DISASTERPREPARED AND MITIGATIONz Setting up of National Committee on Disaster

Management under Prime Minister with Nationaland State level political parties as members interalia to suggest institutional and legislative
measures needed for effective long term strategy
to deal with future major disasters
z Setting up of High Powered Committee on
Disaster Management Planz Ministry of Home Affairs focal point for naturaland manmade disasters

ONGOING INITIATES IN DISASTERPREPARED AND MITIGATIONz Creation of Search and Rescue Teams-at Nationaland State Levels
z Setting of National Disaster Management
Authority
z Setting up of National Institute for Disaster
Management as an autonomous bodyz Strengthening Institutional net workz Four digits common telephone for Disaster
Managers

39

ONGOING INITIATIVES IN
DISASTER PREPAREDNESS AND
MITIGATIONz Implementation of a new UNDP Project from

July,2002-2007 for sustainable reduction innatural disaster risk by involving community insome of the disaster prone districtsz USAID-Programme for Enhancement ofEmergency Responsez Preparation of Vulnerability Atlas of India for
Flood,Cyclone and Earthquake

ONGOING INITIATIVES IN
DISASTER PREPAREDNESS AND
MITIGATIONz Setting up of Orissa State Disaster Mitigation

Authority
z Setting up of Gujarat State Management
Authorityz Working out legal frameworkz Implementation of a Plan Scheme for
HRD,institutional strengthening,public awarenessand community
participation,documentation,research andconsultancy

40

OUR APPROACH/MISSIONz Preparedness rather than crises managementz Coordinated participatory approach rather

than only State responsibilityz Technology up-gradation and deploymentz Information – a tool for disastermanagement

PRIORITY AREAS
z Quick damage assessment Technology
z GIS web enabled networkingz State of art control roomsz Mobile onsite control roomsz Human resource developmentz Greater attention in North eastern regionz Regular review of Sectoral Emergency Support

Functions41

EXTERNAL ASSISTANCE POLICYz No formal appeal for external assistancemade for reliefz External assistance, if offered as solidarity,
accepted with gratitudez Bi-lateral agreements suggested by somecountries

INTERNATIONAL DISASTERRESPONE COOPERATONz Asian Region-Membership of ADRC andADPCz UNDP and USAID projects
z Member of UNDAC Teamz UNOCHA Regional office in Delhi(proposed)z Organised ADRC/UNISDR/UNOCHA
meeting in Delhi

42

Visionz Our vision 2020 is to built a safer India

through sustained collective efforts,
synergy of national capacities andpeople’s participation

Purpose of visit
I am working in Disaster management since 1993. I
came in Japan with the intention to study thesystem ofdisaster management in Japan and other member
countries. To share the experiences of disastermanagement of my country. This study andexperience will be very useful to me for performing
myduties in the field of disaster management.

43Thank you

44