NATIONAL DISASTER MANAGEMENT PLAN
MINISTRY OF HOME AFFAIRS GOVERNMENT OF INDIA
( As approved by NEC in its meeting 21stOctober 2013)
INTRODUCTION CHAPTER I
1.1 Background 1.1.1 Disaster Management Act, 2005 defines ‘disaster’ as catastrophe, mishap, calamity or grave occurrence in any area, arising from natural and human‐induced causes, or by accident or negligence which results in substantial loss of life or human suffering or damage to, and destruction of property or damage to, or degradation of, environment and in of such a nature or magnitude as to be beyond coping capacity of the community of the affected areas. Disasters caused by floods, cyclones, landslides, tidal waves etc. are considered as natural disasters and those caused by chemical, industrial, transport related accidents, mass congregation and security related threats including terrorism are classified as human‐induce disasters. Nationally and internationally, the frequency and intensity of natural as well as human‐induced disasters is increasing. The cumulative effect of these disasters produces a significant personal, material and economic strain on individuals, communities and the financial capacity of all levels of governments. 1.1.2 India is highly vulnerable to floods, cyclones, droughts, earthquakes, landslides, avalanches and forest fires. Out of the 35 states and Union territories in the country, 27 are disaster prone. Almost 58.6 percent of the landmass is prone to earthquake of moderate to very high intensity, over 40 million hectare (12 percent of land) are prone to floods and river erosion, of the 7516 km long coastline, close to 5,700 km is prone to cyclone and tsunamis, 68 per cent of cultivable land is vulnerable to drought and hilly areas are susceptible to landslides and avalanches. Vulnerability to disasters/ emergencies of chemical, biological, radiological and nuclear origin also exists. During last 30 years of time span the country has been hit by 431 major disasters resulting in enormous loss of life and property. According to Prevention Web statistics, 143039 people were killed and about 150 crore were affected by various disasters in the country during last three decades. The disasters have been estimated to have caused loss to property and other infrastructure costing more than US $4800 crore. Losses in the form of intangible effects on the ecosystem affecting the economy, livelihoods, human suffering including health, psychological distress and future vulnerability are often difficult to quantify. Implications of climate change to natural systems and people’s resources, land and infrastructure are also known to aggravate the disasters, in particular of hydro‐meteorological nature. Besides these, urban and industrial disaster risks also require serious attention. The economically and socially weaker segments of the population are most seriously affected in disasters. Within the vulnerable groups, elderly persons, women, children, especially women rendered destitute, children orphaned on account of disasters and differentially abled persons are exposed to higher risks. 1.1.3 It is relevant to note that the Disaster Management Act, 2005 defines 'disaster management' to be a continuous and integrated process of planning, organising, coordinating 1
and implementing measures which are necessary or expedient for (i) prevention of damage or threat of any disaster (ii) mitigation or reduction of risk of any disaster or its severity or consequences (iii) capacity building (iv) preparedness to deal with any disaster (v) prompt response to any threatening disaster situation or a disaster (vi) assessing the severity or magnitude of effects of any disaster (vii) evacuation, rescue and relief and (viii) rehabilitation and reconstruction. 1.1.4. Government of India announced the National Policy on Disaster Management in October, 2009. The policy has set a vision to build a safe and disaster resilient India by developing a holistic, proactive, multidisaster oriented and technology driven strategy through a culture of prevention, mitigation, preparedness and response. 1.1.5. In compliance to the Disaster Management Act, 2005 and in pursuance of National Disaster Management Policy 2009, this document outlines the components of the National Disaster Management Plan as a collaborative effort to develop sustainable, disaster resilient communities across the country. This Plan sets out a comprehensive, multi‐dimensional approach that anticipates joint contributions, community‐based partnerships, and National‐level initiatives. The vast area, huge population, diversity and multi‐hazard vulnerability of India pose serious challenges to any attempt to spell out micro details of the Plan. It is, therefore, required that this Plan will be translated into schemes and programmes with minute details and with clear financial provisions by the concerted efforts of all the Ministries and Planning Commission. 1.1.6. It needs to be noted that in their third report, the second Administrative Reforms Commission made the following observations: (i) Disaster management needs to be professionalised. (ii) Risk management to be brought to the centre stage in all disaster mitigation plans. (iii) All efforts for disaster management to be based on hazard and vulnerability analysis. (iv) Communities and local governments to be made aware of the hazards and the vulnerabilities. (v) Communities and local governments to be involved in formulating disaster management plans. (vi) The primary responsibility for disaster management to be that of the State Government, with the Union Government playing a supportive role. (vii) Effective implementation of land use laws, building bye‐laws, safety laws and environmental laws. (viii) Hazard and vulnerability analyses should be made an essential component of all 2
(ix)
(x)
(xi)
(xii)
crisis/disaster mitigation plans. Priority should be given to seismic micro‐zonation of vulnerable major cities, hazard prone areas, and urban agglomerations in a scale of 1:1000 in Zones V and IV, with topmost priority being given to cities with population of more than one million. Geographical Information System tools should be used to integrate spatial data such as topography, hydrology, land use, land cover, settlement pattern and built structure as well as non‐spatial data such as demography, socio‐economic conditions and infrastructure on a common platform. This should be integrated with satellite and aerospace data as well as data from Geographical Positioning Systems for real time monitoring of crisis situations and for scientific assessment of damages. Scientific, technological and research organizations such as NRSC, ISRO, NIC, GSI and NIDM should be brought on a common platform by NDMA for developing a sound information base for crisis management. This exercise should generate base hazard maps for district and sub‐district levels and should be completed by the end of Eleventh Plan. Till such time the GIS based hazard maps are prepared, the conventional maps have to be used. These maps should form the basis for hazard analysis. A detailed vulnerability analysis should be carried out in all hazard prone areas. Such an analysis would prioritize the areas in order of vulnerability; it should also highlight the vulnerability of different sections of society and infrastructure.
(xiii) Crisis/disaster management plans as stipulated under the Disaster Management Act, 2005 should be prepared, based on hazard and vulnerability analysis. The off‐site emergency plans, in case of chemical/industrial disasters, should be integrated into the District Crisis/Disaster Management Plan. The State Disaster Management Authorities need to develop mechanisms to evaluate these plans periodically, and ensure the effectiveness of the plans. (xiv) The quality of on‐site and off‐site emergency plans in hazardous industrial units needs to be enhanced in terms of completeness and practicability of implementation considering the ground level situation. The State Disaster Management Authorities should set up a mechanism in place to evaluate these plans periodically. (xv) All crisis/disaster management plans should be tested periodically through mock drills. (xvi) It should be the responsibility of the state level ‘nodal department’ to ensure that adequate assistance is available at the district level for drawing up and periodically updating the plans. The nodal department must engage agencies and experts on a continuing basis to examine the plans and bring methodological and 3
substantive deficiencies to the notice of agencies formulating the plans.
(xvii) The activities in the disaster management plans should be included in the development plans of the line agencies and local bodies like panchayats and municipal bodies. (xviii) The supervisory level of each agency should ensure that the annual plan of that agency incorporates the activities listed out in the disaster management plan on a priority basis. (xix) Incorporation of disaster mitigation plans into the development plans should be specially monitored at the five year and annual plan discussions at State and Union levels. The Planning Commission, State Planning Boards and Planning Departments need to see that while formulating plan proposals the process adequately takes into account the disaster prevention/mitigation concerns expressed in this National Disaster Management Plan. 1.2
Need for a National Plan
India is exposed various kinds of disasters, which cause significant loss of life and property, as well as serious damage to the environment and the economy. It is to be noted that disaster management efforts had been taking place in India even before the enactment of the Disaster Management Act, 2005. However, the Act has provided for a clear mechanism to take stock of all these efforts by putting them together in a single Plan document that could enable concerted action and closer monitoring. This Plan has been developed keeping in mind the Vision mentioned in the National Policy. Its aim is to build a safer and disaster‐resilient India by developing a holistic, proactive, multi‐disaster and technology‐driven strategy for disaster management. This will be achieved through reducing the vulnerability of the community to the effects of natural, environmental and human‐induced hazards to a manageable and humanitarian level by (a) bringing a paradigm shift in disaster management from conventional response and relief practice to a more comprehensive risk reduction culture and (b) strengthening the capacity of the India disaster management system in improving the prevention, mitigation, preparedness and response management at all levels. The main purpose of the National Disaster Management Plan is to outline the preparedness, prevention, mitigation and response activities to any emergency situation associated with natural and human‐induced disasters in the country. It provides operational concepts relating to the various emergency situations, describes the overall roles and responsibilities of the concerned sectors in minimising loss of life and suffering. It also provides for a rapid response to disasters through effective use of local, national, regional and international resources. 1.3
Process of Formulation of National Disaster Management Plan
As per the Section 10 (2) (b) and 11 of the DM Act, the National Plan is prepared by the National Executive Committee (NEC) having regard to the National Policy and in consultation with the State Governments and expert bodies or organizations in the field of 4
disaster management, to be approved by the National Authority. It may be noted that the NEC is mandated to: (i) coordinate and monitor the implementation of the National Policy; (ii) lay down guidelines for preparing disaster management plans by different Ministries or Departments of the Government of India and the State Authorities; (iii) monitor the implementation of the National Plan and the plans prepared by the Ministries or Departments of the Government of India; (iv) monitor the implementation of the guidelines laid down by the National Authority for integrating of measures for prevention of disasters and mitigation by the Ministries or Departments in their development plans and projects; The National Plan for Disaster Management, as per section 11 of the Disaster Management Act, 2005, has to include (a) measures for the prevention of disasters or the mitigation of their effects (b) measures for integration of mitigation measures in the development plans (c) measures to be taken for preparedness and capacity building to effectively respond to any disaster or threatening disaster situation and (d) roles and responsibilities of different Ministries or Departments of the Government of India in respect of (a), (b) and (c) above. As per sections 11, 36 and 37 of the Act, the Plan has to be drawn up with the inputs and of all central Ministries/Departments and in consultation with the State Governments.
5
DISASTER MITIGATION CHAPTER II
2.1 Introduction 2.1.1 'Disaster mitigation' is defined by the Disaster Management Act, 2005 to mean the measures aimed at reducing the risk, impact or effects of a disaster or threatening disaster situation. Thus it includes all the steps that can be taken prior to the occurrence of a disaster, including preparedness and long‐term risk reduction measures. It includes both the planning and implementation of measures to reduce the risks associated with known natural and human‐induced hazards. The implementation of mitigation strategies can be considered a part of the recovery process if applied after a disaster occurs. However, even if applied as part of recovery efforts, actions that reduce or eliminate risk over time are still considered mitigation efforts. Mitigation measures can be structural or non‐structural. Structural measures use technological solutions, like flood levees. Non‐structural measures include legislation, land‐use planning (e.g., the designation of non‐essential land like parks to be used as flood zones), and risk transfer mechanisms like insurance. Unlike the short term response phase, the mitigation activities are essentially long‐term measures for reducing the risk. While the response phase has the State Government officials as the first responders, mitigation requires concerted efforts of several Central Ministries, Departments and agencies apart from the State Governments. 2.1.2 Natural disasters continue to occur and are perceived to be on an increase in their frequency, magnitude, complexity and impact. Prevention and mitigation strategies can reduce the risk of disaster, losses due to their impacts and the relief and recovery costs. Mitigation is a key element of disaster management. Through the implementation of this National Disaster Management Plan, disaster risk reduction (DRR) benefits can be achieved to the benefit of individuals, communities and infrastructure. Mitigation actions provide significant return on investment. Benefit‐cost ratios for flood prevention measures in Australia, the United States and the United Kingdom are 3:1, 4:1 and 5:1, respectively. By emphasizing mitigation, India’s built environment (e.g. public utilities, transportation systems, telecommunications, housing, hospitals and schools) can be designed to withstand the impacts of extreme natural forces. 2.1.3 The Disaster Management framework outlines importance of having a plan for National Disaster Mitigation for reducing disaster risks. The Tenth Five Year Plan document has a detailed chapter on disaster management which emphasizes the fact that development cannot be sustainable without mitigation being built into the developmental process. Similarly, eleventh and twelfth Plan advocate mainstreaming of disaster risk reduction measures in developmental programmes. 2.1.4 The 13th Finance Commission in their report observed on disaster mitigation, as 6
follows: (i) As far as disaster mitigation is concerned, we believe that it should be a part of the plan process and that the expenditure therein should be met out of the plan resources of the respective ministries of the Union and the states. This is also advisable as there are already schemes at the central as well as state levels that are targeted towards mitigation, in areas such as drought‐proofing, flood and water management, soil erosion and promotion of earthquake‐resistant structures. While we realise that the current levels of funding of these schemes may not be adequate, it is our view that this aspect is best left to be decided by the Planning Commission and the NDMA. (ii) Our view is broadly in line with the approach taken by the other bodies that have looked into this aspect. The Second Administrative Reforms Commission (SARC) has dealt in great detail with issues relating to disaster mitigation and disaster management plans, as envisaged under the DM Act. It has recommended that disaster plans should be included in the development plans of the line agencies (i.e., central ministries/departments and State Governments) and local bodies. SARC has also recommended that the incorporation of disaster mitigation plans into development plans should be specially monitored at the Five Year and Annual Plan discussions at the state and Planning Commission levels. 2.2 Scope & Limitations
(i)
The task of disaster mitigation requires different nature of work for different hazards. The focus is on reducing the risk posed by different hazards by appropriate preventive measures. (ii) Concerned central Ministries, State Governments, Departments and local governments need to work in a cohesive manner to implement the mitigation components, while the Ministry of Home Affairs coordinates with the State Governments mostly on the response component of the plan. (iii) While the Plan does not replace existing enterprise risk management programs at all government levels, the incorporation of NDMP principles into National/State/Local Government initiatives will benefit the management of risks government and communities. (iv) Disaster mitigation actions include all structural and non‐structural risk treatments appropriate to handle hazards, and leverage or incorporate new, existing and developing disaster risk reduction programs. (v) Disaster mitigation is an ingredient of the continuous and evolving process of overall governance of disaster management. (vi) The Plan acknowledges that disaster mitigation includes measures enacted at the local government level, which are critical to creating safe, secure and prosperous communities across India.
2.3 Goal, Guiding Principles and Approach The goal of the Plan is “to protect lives and maintain resilient, sustainable communities by fostering disaster mitigation as a way of life.” The principlesreflect the essence of what the 7
National Disaster Mitigation Plan aims to achieve and how it should be developed. The principles are: (i) Preserve Life – Protect lives through prevention. (ii) Safeguard Communities – Enhance economic and social viability by reducing impacts of disasters. (iii) Fairness – Consider equity and consistency in implementation. (iv) Sustainable – Balance long‐term economic, social and environmental considerations. (v) Flexible – Be responsive to regional, local, national and international perspectives. (vi) Shared– Ensure shared ownership and accountability through partnership and collaboration. A multi‐pronged approach needs to be adopted to undertake disaster mitigation measures: (i) Mainstreaming mitigation measures into all development projects. (ii) Initiating of National level mitigation projects in high priority areas by Central Ministries and Departments concerned. (iii) Encouraging and assisting State level mitigation projects in accordance with the guidelines. (iv) Indigenous knowledge on disaster and coping mechanism adopted by various States will be given due weightage with special focus on protection of heritage structures. 2.4 Elements of the Disaster Mitigation Plan The proposed Strategy will establish ongoing national disaster mitigation programme activity areas. Implementations of programme activities will be structured around five key elements as described below: 2.4.1 Coordination: Coordination is the key to derive the benefits of the investments in disaster mitigation. The National Executive Committee is toact as the coordinating and monitoring body for disaster management and for implementation of the National Policy. 2.4.2 Public Awareness, Education and Outreach: Disaster Mitigation is most effective when activities engage the community. Therefore, public awareness and education initiatives should be a priority. National/State and local Government partners need to work with multiple stakeholders to enhance public awareness of risks and mitigation opportunities. In order to promote a culture of disaster mitigation in India, the officials at different levels need to work collaboratively to promote and facilitate disaster mitigation initiatives within their own jurisdictions, and in cooperation with other stakeholders, to affirm disaster risk reduction as a way of life for all Indians. This included coordination with non‐governmental organisations, other stakeholders including the private sector to create public engagement, education, and outreach activities focused on disaster mitigation. 2.4.3 Knowledge and Research: It is recognised that sustainable mitigation activities must draw from and build upon domestic and international mitigation research initiatives, scientific developments, best practices, and lessons learned from disaster events. It is 8
required to support new and on‐going research efforts that build a knowledge base for mitigation decisions. Research is essential to the program. There is a need to apply and promote scientific and engineering best practices in order to build a knowledge base for sustainable, cost‐effective mitigation decisions that contribute to community resilience. To promote knowledge and research, it is needed to: Support the identification, development, promotion of best engineering and technical practices. Promote and work to enable timely access to standardised data to support hazard identification and risk assessment across India in order to inform disaster mitigation priority setting and decision‐making. Monitor, and where possible contribute to, research initiatives, scientific developments, best practices, and lessons learned from disaster events. 2.4.4 Mainstreaming Disaster Mitigation into Development Plans: Mainstreaming ‘disaster mitigation’ into development plans is an important mandate of the Disaster Management Act 2005. Integration of disaster risk reduction measures into on‐going flagship programmes of Government of India can be a good beginning, as we can see from the example of National Rural Drinking Water Programme by which a percentage of the financial resources are earmarked for providing assistance to States/ Uts to mitigate the drinking water problems in rural areas in the wake of natural disasters. Steps for ensuring the incorporation of disaster mitigation into various programmes/plans are as follows: Identification of key programme/projects of Government of India, Identification of entry points within the programme of integration of DRR (structural, non‐structural and other mitigation measures) at various levels viz. National, State and district level, Close coordination with concerned departments such as State Planning Commission and finance Department for promoting DRR measures into development plans and policies, Decisions for dedicated budget for DRR within the departmental plans, plans for various departments at the district and sub‐district levels. 2.4.5 National/State/Local Government Mitigation Investments: A successful disaster mitigation strategy depends on contributions at all levels of government. It is therefore necessary to leverage, acknowledge and encourage new, developing and existing disaster mitigation activities (e.g. climate change adaptation, seismic safety, dam safety, transportation and storage of dangerous goods). 2.4.6 Governance A governance structure that engages and enhances local‐level responsibility is more effective than a top‐down approach, especially considering the many opportunities for partnering in local mitigation projects. The governance structure needs to include opportunities to seek advice from a broad range of stakeholders on an on‐going basis. Strategic activities will be implemented within a shared National/State/District governance structure, with stakeholders working together through appropriate channels to ensure the NDMP contributes to the development of sustainable and resilient communities. Activities under the Strategy will be implemented over the time on an incremental, step‐by‐step 9
basis, building on good practices and results achieved. It is important to note that planning is essentially an exercise in allocation of resources. The Planning Commission has the overall responsibility of making assessment of all the resources of the country, augmenting deficient resources, formulating plans for the post effective and balanced utilisation of resources and determining priorities. ‘Disaster Mitigation’ is not a separate sector but an underlying concern that cuts across all the sectors. Following are some of the key observations of the working group of disaster management for the 12th Five Year Plan: Building institutional capacity to critically examine all development initiatives/project to ensure that they are structurally safe to withstand the impact of hazards that it would be exposed to. For instance Building and Bridges constructed on high seismic zones must have adequate earthquake resistant features and roads in landslide prone areas must be constructed with adequate protection work. Taking into account the hazards and vulnerabilities of the area and making sure that the development initiative/project does not increase its vulnerability; rather it aims to reduce the existing vulnerabilities. For instance National Highways must provide sufficient culverts to ensure proper drainage of water through existing drainage systems and Railway line must consider the existing drainage channels to prevent flooding. Ensuring that relevant development initiative/project has adequate flexibility to respond to disaster that may occur during the course of its implementation. For instance housing projects can cater to the needs for disaster victims requiring new houses and drinking water schemes address the drinking water requirement in flood affected areas. 2.5 Hazardspecific Mitigation Plans 2.5.1 Floods Floods are recurrent phenomena in India from the time immemorial. Almost every year some parts of the country or the other are affected by the floods of varying magnitude. Different regions of the country have different climates and rainfall patterns and, as such, it is also experienced that while some parts are suffering under devastating floods, another part is suffering under drought. The rivers in India are broadly divided into the four regions, i.e., Brahmaputra river region, Ganga River Region, North West River Region and Central India and Deccan Region for a study of flood problem. In addition, the Andaman & Nicobar Islands and Lakshadweep have peculiar characteristics, which results in drainage congestion, flooding and erosion in coastal areas. 2.5.1.1 Flood Management Measures I. Structural Measures:The general approach about flood management has been in the form of physical measures to prevent the flood waters from reaching potential damage 10
centres. The main thrust of the flood protection programme undertaken in India so far has been in the nature of structural measures like
i.
(i) (ii) (iii) (iv) (v) (vi) (vii) (viii)
Embankments Dams and Reservoirs. Natural detention basin. Channel improvement. Drainage improvement. Diversion of flood waters Watershed Management / Catchment area treatment. Anti‐erosion works.
Embankments Embankments (including ring bunds and town protection works) confine the flood flows and prevent spilling, thereby reducing the damage. These are generally cheap, quick and most popular method of flood protection and have been constructed extensively in the past. These are reported to have given considerable protection at comparatively low costs, particularly in the lower reaches of large rivers. In many places, embankments may be the only feasible method of preventing inundation. Embankments are designed and constructed to afford a degree of protection against floods of a certain frequency and intensity or against the maximum recorded floods till the time of their planning only (in the absence of detailed hydrological data for longer periods) depending upon the location protected and their economic justification. The raising and strengthening of existing embankments have also been taken up in many of the flood prone States. In order that this work is done adequately it is necessary to adopt the flood frequency approach in their redesign, taking into account the data of historical floods, which is now available. Apart from the raising and strengthening works, erosion along the embankments and natural banks of the river systems has been a serious problem on which considerable expenditure has been incurred in the past. Particular mention could be made of the erosion problem of the embankment systems in Assam, Bihar, U.P, Punjab and West Bengal. The embankments, under serious attack by the major rivers and their tributaries, have to be suitably protected by spurs, pitching and other suitable anti‐erosion measures. On many embankment systems like the Kosi embankment and Piprasi‐Pipraghat embankment on the Gandak in Bihar, the river attack is so severe that the protection measures required to be taken are large and cannot be covered under the normal maintenance works. A number of Committees constituted in various countries as well as in India have deliberated upon the utility of embankments as a means for flood protection. Extreme views have emerged out of these. Many NGOs have voiced serious criticism about existing embankments. One is that problems of flood can be solved by removal of all the existing embankments and the other diametrically opposite being that construction of more and more lengths of the embankments and their raising and strengthening is the only practicable medium/short term solution for the flood problems. The reason for such wide divergence in opinion is obviously due to the inadequacy of sufficient number of performance evaluation studies of existing embankments and the divergent views on their 11
performance. As experienced, some embankments have provided positive benefits by ensuring sustained protection against floods and river spills while on the other hand, some embankments have, in certain reaches of the river, aggravated the flood problem by rising river bed levels, decreasing their carrying capacity, causing drainage congestion in the countryside and distorting the levels/gradient of the outfall points. Construction of embankment with proper roads has been perceived as providing useful communication linkages and reliable surface network for areas that are liable to stand completely cut off during floods and thereafter. They could provide quick communication for facilitating better supervision and maintenance of the flood protection works and provide all weather communication facilities to the adjoining habitats. As such, they are often deemed as the lifeline during floods. It is also recognized that embankments are not an unmixed blessing. They have adverse effects such as interference with drainage, inability to stand erosion, etc. which should be considered before planning this measure for flood management. As such, this method of flood management may be undertaken only after carrying out detailed hydrological and other studies regarding their favourable and adverse effects. ii. Dams and Reservoirs Dams and reservoirs can moderate the intensity and timing of the incoming flood. They store the water during periods of high discharges in the river and release it after the critical high flow condition is over, so as to be ready to receive the next wave. Their effectiveness in moderating floods would depend on the reservoir capacity available at that time for absorbing the flood run‐off and their proximity to the likely damage centre. They are operated with a carefully planned regulation schedule which takes into account both the safety of the dam and related structures and the safe carrying capacity of the lower reaches of the river in their present condition. Reservoirs are more effective for flood management if, apart from the incidental moderation available for any type of storage on a river, specific flood space is earmarked, as in the case of DVC dams across the Damodar and its tributaries. The operation schedule or rule curve being followed should be reviewed and a suitable operation schedule/rule curve prescribed for the monsoon filling to ensure space for flood moderation but which can be filled for conservation at a later stage when high flows end. In order to improve the efficiency of the reservoirs and improve the operation schedules for providing incidental or specific flood moderation effects, arrangement for inflow forecasts should be made. iii. Natural Detention Basins Natural detention basins are usually formed by utilizing natural depressions/ swamps and lakes by improving their capacity by constructing encircling embankments and providing suitable devices for regulating the release of stored waters. Since, the land under the marshes or low depression may hardly require much compensation and rehabilitation 12
measures, this method are relatively inexpensive. The Ghaggar detention basin in Rajasthan is a good example. Depressions available upstream of Srinagar City, on the left bank of river Jhelum, the Mokama Tal area in Bihar and Ottu, Bhindawas, Kotla lakes in Haryana and various beels/haors of Barak basin are some examples of a few natural basins. Moderation of floods by utilizing natural depression, swamps and lakes to which a portion of flood water could be diverted, can also be an effective method of protection from floods depending on topography of the particular area. Generally, suitable regulating device is provided for entering of water in a regulated manner and releasing it back into the river after the flood peak recede. Storage capacity of the natural depression may be sometimes enhanced by adding embankments along the boundary of the depression and adding more than one depression depending upon the requirement. This type of flood moderation is relatively cheap and is adopted provided suitable natural lake exists near the flood prone area. iv. Channel Improvement Adequate channel can be made for carrying its flood discharge at levels lower than its prevailing high flood level by improving the discharge capacity of the channel. This measure for channel improvement by increasing the area of flow or the velocity of flow (or both) can be taken up as flood protection measures so that the banks filling and releasing floods will be controlled. Channel improvement has not been resorted to widely in India mainly because of the high cost involved. However, it may be of advantage to take up such work for local reaches. v. Drainage Channels Surface water drainage congestion due to inadequacy of natural or artificial drainage channels results in floods in many areas. In such cases, drainage improvement by construction of new channels to improve the drainage capacity from the affected area constitutes an effective means of flood control. The increased drainage by such measures reduces the extent of duration for which flood waters remain in the area. The possibility of drainage congestion and flooding in the downstream area as a result of adoption of drainage improvement scheme taken up in upstream area is to be kept in mind while formulating such schemes. Stress has to be laid on improving the existing natural drainage system in the flood plains so that what should essentially be flooding of a few days should not get prolonged for months. In this context, the importance of the system ‘dhars’ or ‘old channels’, which efficiently served the function of draining away the spillage and surface flows generated by local rains, must be recognized. The blocking of these natural drainage channels, which is normally done in the name of “reclamation for development” because of paucity of land or vested interest, must be firmly discouraged. This applies also to all natural depressions, which are targeted for reclamation. The adequacy of existing sluices and drainage channels should be reviewed in areas suffering from drainage congestion. If the capacities of existing sluices in embankments and drainage channels are inadequate, this should be improved by increasing the vents and 13
improving outfall conditions. vi. Diversion of Flood Waters Schemes for permanent diversions of flood waters come under river diversions. These can be employed for lowering water levels by diverting all or a part of the discharge into a natural or artificially constructed channel, lying within or in some cases outside the flood plains. The diverted water may be taken away from the river without returning it further downstream or it may be returned to the river channel some distance downstream or to a lake or to the sea. Diversion of floodwaters takes a part of the flood discharge to another basin or to the same basin downstream of the problem area or to a depression where it could be stored for subsequent release. This measure can be used to manage unusual floods around cities as in the case of flood spill channel near Srinagar and also in the lower reaches of a river near the sea as in the case of Krishna‐Godavari drainage scheme. Important schemes under execution or under planning are the supplementary drain in Delhi, the outfall channel in Jammu and Kashmir, the Damodar in the lower reaches in West Bengal, the Thottapally Spillway diversion in Kerala, the Kolleru lake diversion into the sea in Andhra Pradesh, the Kama‐Pahari drain in Rajasthan and the Hulwaa drain in Uttar Pradesh. vii. Watershed Management / Catchment Area Treatment The watershed management measures include developing and conserving the vegetative and soil covers and also to undertake structural works like check‐dams, detention basins, and diversion channels, etc. This helps in serving as an effective measure in reducing the flood peaks and controlling the sudden surge of the run‐off except during large flood. The watershed management through above mentioned measures in the upper catchment helps in arresting the silt from migrating which has been proven to be one of the aggravating factors of floods in certain rivers. viii. Antierosion Works Alluvial rivers are usually meandering in nature and, therefore, raise problems of erosion and silting at various locations. This process is a natural phenomenon and results in loss of land at one location and gain at some other. Generally, there is a tendency of the meander to shift progressively downstream. The process of bank erosion is, therefore, consistently active and measures for protection of banks are a recurring necessity. RBA recommendations arethat anti‐erosion works should normally be taken up only for protection of towns, industrial area, groups of thickly populated village abadis, for agricultural lands where the BC ratio justified such works and in the case of railway lines and road where relocation is not possible due to socio‐economic or technical grounds. It has also been observed that anti erosion measures are costly and can only be justified for protecting long lengths of vital embankments benefiting large areas, which are threatened by the current, in case retirement is not technically or otherwise feasible. Anti erosion 14
measures are not economical for protection of agricultural land on account of high cost and maintenance involved. Consideration may also be given to the alternative of shifting the population from isolated centres to safer locations. The National Water Policy 2002 has recommended that the erosion of the land whether by the sea in coastal areas or by river waters inland, should be minimized by suitable cost effective measures. The Working Group on Flood Control Programme for the X Five Year Plan (2002‐2007) has observed that anti‐erosion measures are often needed to protect the embankments in vulnerable reaches. It has recommended that anti erosion works on the rivers, forming international boundary, need to be given priority and closely monitored to safeguard the country’s interest. Bank erosion can be minimized by measures that aim at deflecting the current away from the river bank or by adopting measures which aim at reducing the current along the bank of the river and induce silt. The anti erosion measures can also be in the form of revetment or pitching along with launching apron to increase the resistance of the river bank to erosion. Spurs of earth protected by armour of stones or spurs of loose stones or stones in wire‐ mesh crates aim at deflecting the current away from the bank. These generally shift the problem in the upstream or the downstream and necessitate further anti erosion works to safeguard the land against erosion. The measures such as permeable spurs, porcupine spurs made of bamboos or of RCC elements aim at reducing the velocity and thus preventing erosion and inducing siltation in the vicinity of the bank. II. Non Structural Measures: Non‐structural measures strive to keep the people away from flood waters, bearing in mind the stark reality that the flood plains in fact, belong to the river and that the flood perceived only as a curse, could be turned into a blessing in disguise in some ways. It contemplates use of flood plains judiciously, simultaneously permitting vacating of the same for use of the river whenever the situation calls for. This technique allows the use of flood plains reducing the disaster dimension, while retaining its beneficial efforts. In view of cost effectiveness of the non‐structural measures and speedier implementation, and in recognition of the fact that as more and more human encroachments and activities are taking place in the flood plains in our country, the main thrust is now on the non‐structural flood management measures. The non‐structural measures are broadly grouped as follow: i. Flood Plain Zoning ii. Flood Proofing iii. Flood Forecasting and Warning iv. Ecosystem based interventions v. Regulation of Reservoir vi. Capacity Building vii. Research & Development i. Flood Plain Zoning It is natural for a river to overflow its banks in the event of heavy rainfall in its upper catchment and spill into the flood plains which are basically its domain. Extensive and 15
often unplanned use of flood plains by man disregarding the basic fact that it is a part and parcel of the river leads to damage. Thus, the uncontrolled and indiscriminate development of flood plains due to pressure of population can be considered as one of the main factors responsible for the flood damage reported from different parts of the country in spite of substantial investments in the flood sector during the last four or five decades. The basic concept of flood plain management is to regulate the land use in the flood plains in order to restrict the damage due to floods, while deriving maximum benefits from the same. This is done by determining the locations and the extent of areas likely to be affected by floods of different magnitudes/frequencies and to develop those areas in such a fashion that the Zoning, therefore aims at disseminating information on a wider basis so as to regulate indiscriminate and unplanned development in flood plains and is relevant both for unprotected as well as protected area. ii. Flood Proofing Flood proofing measures help greatly in the mitigation of distress and provide immediate relief to the population in flood prone areas. It is essentially a combination of structural change and emergency action, not involving any evacuation. The techniques adopted consist of providing raised platforms for flood shelter for men and cattle and raising the public utility installation above flood levels. In case of urban areas, certain measures that can be put into action as soon as a flood warning is received involve installation of removable covers such as steel or aluminium bulk heads over doors or windows, permanent closure of low level windows or other openings, keeping store counters on wheels, closing of sewer well, anchoring machinery, covering machinery with plastic sheet, seepage control, etc. iii. Flood Forecasting and Warning Of all the non‐structural measures for flood management which rely on the modification of susceptibility to flood damage, the one which is gaining increased/sustained attention of the planners and acceptance of the public is the flood forecasting and warning. Flood Forecasting enables forewarning as to when the river is going to use its flood plain, to what extent and for how long. As per strategy of laying more emphasis on non‐structural measures, a nationwide flood forecasting and warning system has been established by Central Water Commission. The system under CWC is largely on major interstate rivers and States often supplement these by their own efforts at other stations. With reliable advance information/warning about impending floods, loss of human lives and moveable properties and human miseries can be reduced to a considerable extent. People and cattle can be shifted to safer places. Similarly, valuable moveable properties can be removed to safer places beyond area to be inundated. Presently, National Flood Forecasting and Warning Network of Central WaterCommission comprises of 175 flood forecasting sites (147 level forecasting and 28 inflow forecasting sites). CWC through its twenty flood forecasting divisions issues forecasts to various user agencies, which includes various agencies of the States/ Central Governments such as 16
Irrigation or waterways/Revenue/Railways/public undertakings and Dam/Barrage Project Authorities/District Magistrates/ Sub Divisional Officers besides the Defence Authorities involved in the flood loss mitigation work. For issue of flood warning at the desired stations/ reservoirs, the flood data of around 380 base stations are utilized/ taken into consideration. For timely communication, a wireless network of about 550 stations has also been set up. The flood forecasting and advance warning for 148 low lying areas/ towns and 28 reservoirs help the user agencies in deciding mitigation measures like evacuation of people and shifting their moveable property to safer locations. The inflow Forecasting at 28 reservoirs is used by the dam authorities in timely operation of reservoir gates for safe flood discharges downstream as well as to ensure adequate storage in the reservoirs for meeting irrigation and hydropower generation demands during non‐monsoon period. Annuialy, over 6000 flood forecasts and advance warnings are issued by CWC regional offices across the country to the user agencies during floods. iv. Regulation of Reservoirs The RBA has observed that reservoirs in general have a beneficial effect on the flood problems of a basin. Their effectiveness in moderating flood would depend on the capacity available for absorbing flood run‐off. Reservoirs by themselves may not offer complete flood protection for various reasons. Often embankments along the river in the downstream reaches are required as a supplementary measure to contain the residual floods. However, the reservoirs would involve submergence and their effectiveness decreases if the flood prone area is located much downstream of the dam. RBA recommended that reservoirs to the extent technically and economically feasible must be considered as an important component in any package of measures for flood management. Reservoirs would also ensure the optimum utilization of water resources. The National Water Policy 2002 has recommended provision of adequate flood cushion in water storage projects and flood control to be given overriding consideration in reservoir regulation policy. The Working Group on Flood Control Programme for the X Five Year Plan had observed that the reservoirs provide long term solution to the problem of floods and it had recommended that a reservoir is more effective for flood control if a designated space is reserved and a reservoir is more effective for flood control if a designated space is reserved and a reservoir is regulated in accordance with laid down procedures. Experience shows that well planned reservoirs provide optimum flood moderation for downstream areas in addition to the other benefits like irrigation, power generation etc. The Task Force on Flood Management and erosion control has reiterated the views of the RBA and those contained in NWP‐2002 and has recommended taking up of reservoir projects of required dimension with specific flood cushion. The Task Force has further recommended that even in reservoirs constructed for power/irrigation, the operation rules be framed in such a way that effective flood moderation becomes feasible. The flood 17
management benefits can be enhanced by installing modern and effective flood forecasting and warning system in the catchment area of reservoirs for real time forecasting of inflows and maximum possible moderation of the anticipated flood peaks by effective management of reservoirs capacity. An action plan to review operation rules off the entire existing major reservoir and to modify them appropriately consistent with the requirement of flood moderation and other uses is to be formulated. v.
Capacity Building
If the flood problem of India is to be managed effectively a larger capacity for understanding the problem and planning mitigation measures would have to be provided for. The strategy would have to consist of: (a) Building a scientific database (b) Building a large R&D capacity (c) Human resource development Fluvial hydraulics is a branch of engineering, where the complex mechanics of water sediment transport and morphological changes are studies. Physical hydraulic models are useful but not sufficient. Mathematical models dealing with both the phenomena are increasingly coming into operational use, but these require access to large computers, and computational skills. Whereas the Central Water & Power Research station (Pune) has more or less kept abreast of these developments, the State institutes in the flood prone areas such as River Research Institutes of West Bengal and Assam, the research institute of Bihar etc. have not been strengthened. Radical improvement in this aspect is necessary. These bodies should be made autonomous. The interaction between the leading academic institutes, the research institutes and the link organizations need to be strengthened. A large programme of quality improvement in the skulls of link Organizations is required. Their personnel need to be encouraged to undertake higher studies in the flood sector. Chairs in flood control and management may have to be set up in the universities, engineering institutes such as Regional engineering colleges, institutes. IITs etc. located in the flood prone areas states. A major gap in flood management activities is the lack of availability of data/information which is required in different situations. For example, information on flooded area showing extent of inundation due to floods, depth and duration of flooding are important parameters on which depends the plan and design of measures required to solve the problem. Similarly, precise and correct information of flood damages is very essential for planning appropriate measures and for deciding priority for their implementation. The Rashtriya Barh Ayog has also emphasized the need for scientific system for flood damage assessment. There is ample scope for collecting the flood related data/information through remote sensing technique. As this entire work is voluminous and is required to be seen in 18
totality, exclusive flood data centres are required to be established at State and Central levels. vi. Research & Development: Flood inundation mapping serves many purposes. Apart from showing the critical spread of flood affected area, these identities areas needing post flood all relief measures. It also brings out the effectiveness of the flood control works and their effect on river flow. This information can be used for further planning, strengthening or additional measures/works. The RBA recommended that further studies should be carried out towards developing watershed models suitable for using remotely sensed information as inputs, in order to predict flood flow under “inadequate” or “no data” situations. It also recommended that efforts should be intensified to evolve more and more mathematical models and use them to remove empiricism and introduce better rationality in decision making process. The Working Group for the X Plan observed that hydraulic model experiments of problem reaches of rivers to plan suitable anti erosion measures should be undertaken through the CWPRS, NEHARI and the research stations of the States with adequate fund allocation. The operation of Kosi barrage, Gandak barrage and the Farakka barrage, which have international implications vis‐à‐vis the river channel condition and erosion should be based on hydraulic model experiments carried out for various combination of gates operation so as to ensure a fairly smooth channel flow condition during all stages of river flows. Model studies are also required to study the effect of flood control works on river behaviour which may have significant strategic importance in the case of rivers forming international boundaries. It is recommended that for flood management works of permanent nature e.g. embankment, spurs, revetments, etc. involving huge costs and having significant impact on river behaviour, mathematical model studies for long reaches complemented by physical model studies for problem reaches, should invariably be undertaken. The model study facilities in the research stations of the flood prone states should be suitably upgraded and requisite funds provided. Adequate administrative and financial autonomy needs to be given to the research organizations such as CWPRS for speeding up of these studies. Considering the importance of the studies, the research organizations should be exempted from ban on recruitment of staff. 2.5.1.2 Action Plan for Flood Disaster Management I. Agency – State Governments /UTs 1) Immediate Measures (1 year) Sl. What Who When How No. (i) Identification of flood Principal 1 year Identification of areas by prone villages/ blocks/ Secretary/ states taking village as the districts /Secretary basic unit by analysing Irrigation/W available data and working 19
R Department (ii)
Identification of immediate and short‐ term flood management schemes in the basins other than those identified by the Task Force for Flood Management / Erosion Control (iii) Formulation of Central Sector Schemes by CWC in consultation with or on demand from States/reservoir authority for expanding flood forecasting network.
Principal Secretary/ /Secretary Irrigation/W R Department
1 year
Principal Secretary/ /Secretary Irrigation/W R Department
1 year
out taluka, district, state, sub‐basin, basin wise figures Identification of schemes by concerned State.
Reviewing existing FF and Hydrological/ Hydro meteorological stations network and identification of rivers/sites and major reservoirs for expansion by CWC in consultation with State Governments /reservoirs authority.
2) Medium Term Measures (13 years)
(i)
Management of Principal Urban Flooding Secretary/ /Secretary Irrigation/WR Department
(ii)
Identification of suitable locations for breaching sections/ overflow sections along various rivers.
20
Principal Secretary/ /Secretary Irrigation/WR Department
1 year 2 year 3 year
Formulation of action plan for study of drainage pattern and suggesting remedial measures for urban areas susceptible to flooding Implementation of the findings of the study report as above. Identification of the breaching sections Implementation of the identified schemes Emergency Action Plan for major embankment schemes to be made compulsory Regulation of developmental activities in areas to be affected Introducing incentive schemes for affected land/crop due to such
breaches (i)
3) Long Term Measures (more than 3 years) Principal 5 year Secretary/ /Secretary Irrigation/WR Department
Updating & digitization of available maps by Survey of India. Preparation of DEM for flood prone areas.
Principal 6 year Secretary/ /Secretary Irrigation/WR Department (iii) Flood Plain Zoning Principal 5 year & Regulation Secretary/ /Secretary Irrigation/WR Department
Implementation of immediate & short term schemes amounting to Rs. 4982.10 crore identified by Task Force for Brahmaputra, Barak and Ganga Basin (6 years) Demarcation of different year’s flood levels at prominent places involving local bodies, village panchayats, NGOs and utilizing detailed survey maps. Enactment and enforcement of laws Preparing and publishing flood risk maps and promotion of insurance schemes by insurance companies Incentives/motivation to people for taking flood insurance schemes by linking interest on loans in flood prone areas to insurance cover Introduction of crop insurance Identification of major & medium reservoir projects keeping in view the severity of flood problem and available flood forecast system. Modify the operation rule curve/manual to provide flood moderation and enforcement thereof.
(ii) **
Preparation of large scale close contour maps &Digital Elevation Model (DEM) of flood prone areas Execution of immediate & short term measures of flood management
(iv) Formulation of Principal 5 year Flood Insurance Secretary/ schemes /Secretary Irrigation/WR Department
(v)
Review of operation rule curve of reservoir projects
4) (i)
21
Principal Secretary/ /Secretary Irrigation/WR Department
1 year 5 year
Activities on regular basis Scientific Principal studies/evaluation Secretary/
Regular basis
Incorporating outcome of evaluation reports in new schemes
of completed /Secretary schemes Irrigation/WR Department
(ii)
Strengthening &maintenance of Flood Control Structures
Principal Regular Secretary/ basis /Secretary Irrigation/WR Department
Involving independent agencies like IIMs, WAPCOS for such studies/evaluation Encouraging/enforcing proper documentation Raising & Strengthening of embankments Anti‐erosion works Earmarking adequate funds Identification of areas for drainage improvements and steps for the same (1 year)
(iii) Protection of Principal Regular natural drainage / Secretary/ basis low lying areas /Secretary Irrigation/WR Department II. Agency – India Meteorological Department (IMD) 1) Immediate Measures (1 year) Sl. What Who When How No. (i) Preparation of report by DG 1 year To be carried out by IMD. IMD for establishing (Meteorology) Priority should be for Flash suitable stations of IMD Flood FF Stations required density 2) MediumTerm Measures (13 years) (i) Working out a joint pilot DG 2 year Work to be carried out project with IMD for (Meteorology) by IMD in consultation development of model for IMD with CWC. forecast of flood resulting due to cyclonic storm 3) Long – Term Medium (More than 3 years) (i) Improvement of DG 5 Establishment of network of required rain gauging and (Meteorology) years density transmission of IMD data (ii) Development of DG 5 Development of capability for short‐ models for QPF (Meteorology) years term (preferably 48 hrs) Quantitative 22
and flash flood IMD forecast where intense rainfall is expected
III. Sl. No. (i)
IV. Sl. No. (i)
V. Sl. No. (i) 23
Precipitation Forecasting (QPF) which is point specific and in narrower range (preferably 5 mm) using appropriate computer modelling technique in general and for critical areas such as Sutlej basin (HP), Uttaranchal Arunachal Pradesh and other Himalayan region which are prone to flash floods in particular on priority.
Agency NRSC/ISRO LongTerm Measures (More than 3 years) What
Who
When
How
Preparation of large‐scale close contour maps and Digital Elevation Model (DEM) of flood prone areas.
Director, 5 years Preparation of DEM for other flood NRSC/GM, prone areas Aerial Services & Superimposing flood frequency on Digital survey maps Mapping, NRSC Obtaining clearance of MOD for flying aircraft carrying ALTM equipment. Digitization and use of close contour large scale maps by CWC / State Government.
Agency – Ganga Flood Control Commission What
Who
Scientific Chairman, studies/ GFCC evaluation of completed flood management scheme
When
How
Regular
Incorporating outcome of evaluation reports in new schemes Involving independent agencies like IIMs, WAPCOS for such studies/evaluation Encouraging/enforcing proper documentation
Agency – Brahmaputra Board What
Who
When
How
Scientific
Chairman,
Regular
Incorporating outcome of evaluation
Brahmaputra studies/ evaluation of Board completed flood management scheme VI.
Agency – Central Water Commission
1) Immediate Measures (1 year or less) Sl. What Who When No. (i) Finalization of CWC/ 6 criteria for GFCC/ month categorization of Brahmaptura flood prone areas Board based on frequency, area affected, depth and duration (ii) Identification of CWC 6 critical stations month in Nepal & Bhutan under on‐going projects by CWC for improving flood forecasting 2) Medium Term Measures (13 years) (i) Setting CWC 2 years up/strengthening of National Data Centre for flood related information (ii) Formulation of CWC 1 year Central Sector Schemes by CWC in consultation with or on demand from States/reservoir authority for expanding flood 24
reports in new schemes Involving independent agencies like IIMs, WAPCOS for such studies/evaluation Encouraging/enforcing proper documentation
How Finalisation of criteria for categorization by CWC based on frequency, area affected, depth & duration. By reviewing the existing sites (42 nos.) in Nepal & short listing the critical sites for increasing the frequency of data transmission.
Strengthening of Data Centre of CWC with suitable infrastructures
Reviewing existing FF and Hydrological Hydro meteorological stations and identification of rivers/sites and major reservoirs for expansion in consultation with State Governments/ reservoir authority. Formulation of expansion scheme (1
forecasting network
(i)
2 year
year)
3) Long Term Measures (More than 3 years)
Preparation of large‐ scale close contour maps and Digital Elevation Model of flood prone areas. (ii) Expanding flood forecasting network. (iii) Modernizing flood forecasting network
CWC/SOI/ NRSC/State Govts.
Updating & digitization of available maps by SOI.
5 years Implementation of expansion scheme. CWC 4 year Establishment of telemetry for data collection, satellite based data communication. Development & Calibration of mathematical models for flood forecasting at identified priority sites (under implementation). (iv) Construction of MEA/MOP/ 5 year Preparation of feasibility storage projects in MOWR/ reports/DPRs of identified north‐eastern region, CWC/ NHPC/ projects by Task Force in NER, Nepal, Bhutan and NEEPCO Nepal, Bhutan & Ganga basin Mahanadi (India) along with Tikarpara (investigation, dam in Mahandai ( 5 years) preparation of DPRs, agreements between 5 years Preparation of Feasibility stake holders and Report/ DPRs of similar projects construction of for other regions projects) Active dialogue with the States 5 years and Nepal/ Bhutan (5 years) Implementation of schemes. 20 year Funding of flood component by Central Government. (v) Strengthening of MOWR/ 3 year Implementation of Task Force Central CWC/State recommendations on Organisations for Govts. institutional arrangement for effective Brahmaputra Basins. coordination of design, Strengthening of Flood implementation, Management Organisation of 25
CWC
5 years
monitoring and evaluation (DIME)
3 year 1 year 1 year
CWC. Setting up of High Level Steering Committee under the chairmanship of Chairman, CWC with secretaries of states as members of monitoring Action Plan.
4) Activities on regular basis (i) Scientific State Govts./ Regular studies/ CWC/ GFCC basis evaluation of Brahmaputra completed Board schemes
Incorporating outcome of evaluation reports in new schemes Involving independent agencies like IIMs, WAPCOS etc. for such studies / evaluation. Encouraging / enforcing proper documentation.
2.5.1.3 Urban Flooding The urban flooding is a very high frequency challenge towards Disaster manager in India, and as such it has to be treated holistically in a multi‐disciplinary manner. The urbanization process and the hydraulic insufficiency‐‐‐Of drainage systems are two of the most common causes of urban flooding. There are many issues that need to be considered in order to develop sound, reliable and most representative Urban Flood Mitigation strategies. A significant part of this management framework is dependent upon the use of science and technology for improved monitoring, modelling/forecasting and decision‐support systems. National Institutions and Agencies The nodal Ministry for Urban Flooding is Ministry of urban development. Indian Metrological Department, Central Water Commission, Survey of India and NRSC have important role in urban flood mitigation. Urban Flood Mitigation and Preparedness plan The following measures could be adopted to mitigate the risk of urban flooding: (i) Watershed Management: urban areas comprise of natural watersheds, which, in turn, are made up of smaller catchments. The entire watershed, however, drains into a single water body like lake or river. While catchment will be the basis for the purpose of designing storm water drainage system, any planning for effective urban flood management has to take into the consideration the entire watershed. 26
(ii)
Flood Alert System: Dissemination of flood warnings must be carried out, using a wide range of latest technologies. The flood warnings can be simultaneously issued through radio, television, mobile phones and SMS messages, put on the official websites, of all government agencies, emergency services, media, etc.
(iii)
(iv)
(v)
(vi)
Risk, Hazard Assessment and Mapping: Flood management professionals should evaluate the levels of acceptable risk, based on specific site conditions, to make people aware what risk is present in their lives, and to assist them in making formal acceptance, based on which adequate flood protection measures can be taken up. Estimation of Possible Inundation levels: The natural drainage system within an urban area is highly modified and its hydraulic characteristics are affected by day to day activities like dumping of solid waste into the drainage system. The characteristics of surface runoffs also tend to overwhelm and impact the carrying capacity of surface drainage system. As such, determination of the likely flood prone areas due to localised flooding is complicated and has to be undertaken with greater understanding of all the factors affecting the drainage systems. Early warning system: Meteorological forecasts prepared by IMD, largely include a description of the current and forecasted meteorological weather situation, supplemented by information on the anticipated rainfall, temperature, wind velocity, etc. generated by Numerical Weather Prediction (NWP) models. They are prepared by weather forecasters for larger regions. The real‐time availability of rainfall information from heterogeneous networks operated by various national/regional/local scale agencies shall provides an opportunity to integrate and generate a most representative rainfall analysis for utilization in UFDM models. Operational Support: The EOC of the ULB will be the nerve centre for all DM related activities. They will be equipped with the state‐of‐the‐art facilities. In the context of urban flooding the software installed on computers at the EOC should be able to extract rainfall intensity for various durations from an ongoing storm data transmitted in real‐time.
2.5.2 Drought 2.5.2.1 Context Drought is a normal, recurrent feature of climate and characterized in terms of its spatial extension, intensity and duration. Conditions of drought appear when rainfall is deficient in relation to the statistical multi‐year average for a region, over an extended period of a season or a year, or even more. Drought is a temporary aberration unlike aridity, which is a permanent feature of climate. Drought produces wide‐ranging impacts that span across many sectors of the economy and are felt far beyond the area experiencing physical drought. Direct or primary impacts of 27
droughts are usually associated with reduced agricultural production; depleted water levels; higher livestock mortality rates and damage to wildlife and fish habitats. When direct impacts have multiplier effect through the economy and society, they are referred to as indirect impacts in terms of reduced income for farmers and agri‐business, increased prices for food and timber, unemployment, reduced purchasing capacity and demand for consumption, default on agricultural loans, and reduction in agricultural employment leading to migration etc. 971 blocks of 183 districts covering an area of about 74.6 million hectare have been identified as drought prone areas of the country. Most of the drought prone areas lie in the arid, semi‐arid and sub‐humid regions. States experience enormous fiscal stress in coping with drought as expenditure on relief measures often takes precedence over mitigation, placing acute burden on the State budget and thus relegating development plans. A greater emphasis on mitigation measures can reduce incidence and severity of drought, sustain crop production and save resources spent recurrently on relief. Scientific advances in climate forecasting, information and telecommunications technology and spread of participatory democracy provide tremendous opportunities to develop an effective system for monitoring and managing drought, establishing drought forecasting systems, laying out location specific crop contingency plans, implementing timely relief programmes and focusing on long term drought proofing programmes e.g. watershed development, water harvesting etc. 2.5.2.2 Drought Mitigation Mitigation measures are initiatives undertaken to reduce the incidence or minimise impacts of drought. Besides drought proofing, these measures help in adapting to climate change, restoring ecological balance and bringing development benefits to the people. However, drought mitigation programmes are not to be construed stand‐alone interventions that are to be implemented only in the wake of a drought; but must form part of developmental planning in the domain of soil conservation, watershed development and forestry. As such, drought mitigation measures are to be mainstreamed in regular development programmes of Central and State Governments. Government’s policy towards drought management has changed considerably over the years and now rests upon early warning & preparedness, crisis management response, medium and long‐term drought mitigation measures with greater application of state‐of‐ the art technology and scientific tools. A number of Central Governments Schemes/Programmes have evolved over time to address the need for medium and long‐ term drought mitigation requirements. Notable among them are Mahatma Gandhi National Rural Employment Guarantee Scheme (MGNREGS), Integrated Watershed Management Programme (IWMP), subsuming erstwhile Drought Prone Area Programme (DPAP)), National Rural Drinking Water Programme (NRDWP),, Rashtriya Krishi Vikas Yojna (RKVY), Fodder & Feed Development Scheme etc. Besides, various area development programmes by State Governments either through their own resources or with Government of India’s support like Backward Region Grant Fund (BRGF), Rural Infrastructure Development Fund (RIDF) are contributing significantly to enhance drought resilience. Central and State 28
Governments continue to consider further possibilities of reorienting/synergising regular development programs for achieving a robust drought resilient regime. The operational framework for drought mitigation comprises of (i) drought risk and vulnerability assessment, (ii) forecasting and early warning and (iii) structural & non‐ structural measures including drought proofing programmes/schemes, (iv) awareness generation, (v) research & development and (vi) community participation. 2.5.2.3 Vulnerability and Risk Assessment State Governments are primarily responsible for mitigation of drought. The Manual for Drought Management (2009) stipulates that State Governments should set up a mission/task force on drought mitigation for advising them on policies and programmes. The said mission/task force should also conduct drought risk and vulnerability assessment for identifying drought prone areas, nature and severity of drought, vulnerable economic sectors, communities and individuals etc. Such an assessment will provide an economic rationale for interventions and in identifying mitigation measures. A composite risk and vulnerability assessment would help in developing long term policies and programmes for drought risk mitigation at the State level and in framing appropriate strategies for addressing the critical gaps during drought relief. As a part of this exercise, States would need to prepare vulnerability maps especially in the case of rainfed areas in order to bring them under assured irrigation to the extent possible. State Governments may keep the Department of Agriculture and Cooperation (DAC) and other concerned Ministries/Departments of the Government of India appraised about their drought mitigation efforts. The State Disaster Management Department, often part of Revenue Department, shall involve concerned line Departments of the State government, State Agricultural Universities and ICAR Institutes located in the States while framing mitigation strategies so that adequate attention is accorded to mitigation measures in various on‐going and new schemes/programs of the Government and appropriate provisions, wherever possible, are embedded. Department of Agriculture and Cooperation, Government of India in collaboration with experts from the Central Ground Water Board (CGWB), Central Water Commission (CWC), India Meteorological Department (IMD), National Remote Sensing Centre (NRSC), National Rainfed Area Authority (NRAA) and Indian Council of Agricultural Research (ICAR) Institutes will facilitate States in finding desirable solutions to the issues pertaining to Drought Mitigation and Management. 2.5.2.4 Forecasting and Early Warning The Crop Weather Watch Group (CWWG), an Inter‐Ministerial forum at Central level, meets on regular basis to take stock of rainfall, weather forecast, progress of sowing, crop health, storage level in major water reservoirs, pest control, inputs availability etc. Observations of CWWG are shared among Central Ministries/Departments and State Governments for formulating appropriate strategy to meet drought related contingencies, if any. Efforts of State Governments are supplemented from Central resources, whenever the situation 29
warrants for mitigating hardships in agriculture and allied sectors. Early warning systems can be further strengthened through the following initiatives (illustrative): (i)
Strengthening of long range, medium range and short range forecasting of monsoon by IMD at Meteorological Sub‐Division, District and Taluka level;
(ii)
Strengthening of National Agricultural Drought Assessment and Monitoring System (NADAMS) currently implemented by Mahalanobis National Crop Forecasting Centre (MNCFC) in collaboration with NRSC for forecasting specific and early indicators of drought using Geographical Information System (GIS) & Remote Sensing (RS) technology. NADAMS should also include advance forecast of soil moisture stress before onset of monsoon in different districts, weekly assessment and forecast of drought etc.;
(iii) Improvement in the Aridity Anomaly Report of IMD by giving comparative status with previous weeks and that of corresponding period of previous drought years; (iv) Maintenance of database by MNCFC in consultation with National Informatics Centre (NIC), IMD and other institutions in the country for providing early warning signals of drought through their long and medium forecasts as envisaged in Manual for Drought Management (2009); (v)
Key drought indicators have been enumerated in Manual for Drought Management (2009) incorporating parameters viz., rainfall deficiency, storage of water levels in reservoirs, surface and ground water levels, sowing and crop conditions etc. These indicators along with Aridity Anomaly Index., Standardized Precipitation Index, Palmer Drought Severity Index, Crop Moisture Index, surface Water Supply Index, Normalized Difference Wetness Index, Effective Drought Index and Moisture Adequacy Index can be taken into consideration for developing a composite index for facilitating early detection and declaration of drought;
(vi) Use of in‐situ and remotely sensed observations for drought assessment and monitoring by NRSC can also be utilized for overall assessment of the situation by the States and the Centre; (vii) Continuous assessment of soil moisture stress, assessment of vegetation through remote sensing supported by ground truthing with the help of NRSC and State Agricultural Universities; (viii) Extensive use of spatial data (GIS platforms) and scientific tools for developing decision support systems, enhancing efficacy of vulnerability analysis, risk management and improving early warning & forecasting systems. National Remote Sensing Centre (NRSC), NIC and IMD can collaborate in strengthening ongoing NADAMS under MNCFC by including customised application of GIS & RS platform. State Drought Management Centres (SDMC) can facilitate the integration of data and expertise from multiple Institutions such as MNCFC, ICAR, NRSC, IMD, State Agricultural Universities, State Departments of Irrigation, Ground Water, Revenue, Agriculture etc., to 30
evolve a robust method for drought intensity assessment at sub‐district levels. 2.5.2.5 Structural Mitigation Measures Structural mitigation measures include involvement of Central and State Governments by providing technological solutions to drought mitigation primarily through developmental programmes and relief operations. 2.5.2.5.1 Structural Measures: Ongoing Programmes/Schemes: Several on‐going programmes of Government of India address the need for drought mitigation through various drought proofing interventions. Notable among them are Integrated Watershed Management Programme (IWMP, that subsumed erstwhile Drought Prone Area Programme‐DPAP, Integrated Wasteland Development Project‐IWDP, Desert Development Programme‐DDP) under Department of Land Resources (DoLR), Rashtriya Krishi Vikas Yojna (RKVY), National Food Security Mission (NFSM), National Horticulture Mission (NHM) under Department of Agriculture and Cooperation (DAC), Command Area Development and Water Management Programme (CADWM), Repair, Renovation and Restoration of Water Bodies (RRR) & Artificial Recharge to Ground Water through Dugwell (ARGWD) under Ministry of Water Resources, National Rural Drinking Water Programme (NRDWP) under Ministry of Drinking Water & Sanitation, Mahatma Gandhi National Rural Employment Guarantee Scheme (MGNREGS) under Department of Rural Development, Integrated Child Development Services Scheme (ICDS) under Ministry of Women & Child Development, Fodder & Feed Development Scheme under Department of Animal Husbandry Dairying & Fisheries, Backward Regions Grant Fund Programme (BRGF) under Ministry of Panchayati Raj, NGO based programmes under Council for Advancement of People’s Action and Rural Technology (CAPART), Rural Infrastructure Development Fund (RIDF) under NABARD, National Afforestation Programme (NAP) under Ministry of Environment & Forests, Public Distribution System (PDS) under Department of Food & Public distribution etc. The Manual for Drought Management (2009) emphasises the need for convergence of development schemes and programmes with watershed development/harvesting projects. For example, financial resources available under BRGF and physical labour under MGNREGS can be converged for creating water conservation & water harvesting structures, undertaking various drought proofing measures including afforestation & tree plantation, irrigation canals including micro and minor irrigation works; provision of minor irrigation facilities, land development etc. Programme implementing Ministries/Department may therefore have a relook or revisit their on‐going programmes for ensuring that drought resilience measures are appropriately embedded in them. 2.5.2.5.2 Structural Measures: Action Plan for revisiting on‐going and formulating future Programmes/Schemes Design of any future developmental programmes will invariably have to be compatible with the imperatives of drought resilience. Such an approach will naturally vary for different agro‐climatic zones depending upon their vulnerability profile and thus be selective and 31
priority driven. Some illustrative drought mitigation measures that may be considered for embedding/mainstreaming in ongoing as well as future programmes/schemes are as under: a) Artificial recharging of ground water, watershed programmes in privately owned small/marginal farms, laying of pipes/channels for exclusive transportation of water to dry areas; b) Programme for reconstruction and preservation of traditional water harvesting structures, construction of canals for transportation of water from surplus to non‐ surplus areas, establishment of cost‐effective drip /sprinkle irrigation practices etc. c) Construction of water harvesting structures at the right place where water recharge can be enhanced/will be used for life saving irrigation at critical stages of crop growth and during drought situations. d) Construction of “Community Ponds” through Panchayati Raj Institutions (PRI) and maintenance by levying user charges. e) Augmentation of agro‐based food processing industries in rural areas for sustenance of employment, f) Establishing chain of cold storages to minimise post‐harvest losses along with adaptation of appropriate post‐harvest management practices like pre cooling, cold storages and refrigerated transport. Pre‐harvest losses due to diseases and pests can also be minimized through better management practices; g) Construction of shelters for cattle and development of infrastructure for storage and transportation of dry and green fodder etc.; h) Ensuring provision of medicines and critical health care in the risk prone areas during drought for humans and animals; i) Ensuring efficient functioning of the PDS in drought affected areas; j) Provision of adequate infrastructure for dissemination of weather based advisories to the farming community on real‐time basis in regional languages through extension machineries; k) Providing credit promptly in the drought affected areas and extending marketing and price support to farmers; l) Insurance products need to be developed for different agro‐climatic zones providing coverage against drought. The Central/State Governments need to promote, agricultural insurance programmes and ensure that farmers are informed about the availability of insurance products and educate them about the need for managing their yield and income risks through insurance coverage; m) Identifying, procuring and keeping in readiness drought proofing materials in required quantities before the onset of monsoon season such as :‐
32
(i)
Seed & fodder Plan (including alternative varieties, mini kits etc. keeping in view the impending drought);
(ii)
Health care (which would include state of readiness for attending to
human beings and animals attacked by heat stroke, procurement and storage of medicines, state of the art mobile medical services, sanitation etc.); (iii)
Water availability plan (including movement plan through railways and tankers, exploitation of ground water for irrigation, restriction on water‐ use by industrial units /amusement parks etc.);
(iv)
Advance credit plan for easy availability of credit, entitlement and repayment of claims for insurance;
(v)
Assessment plan of food grains under Public Distribution System (PDS), Integrated Child Development Services (ICDS) and Antyodaya Schemes;
(vi)
Advance plans for electricity and fuel requirement and their allocation on demand;
n) Drought proofing including afforestation and tree plantation under MGNREGA, subject to provisions of the Scheme o) Construction of water conservation and water harvesting structures including contour trenches, contour bunds, boulder checks, gabion structures, underground dykes, earthen dams, stop dams and spring shed development under MGNREGA, subject to provisions of the Scheme. p) Disaster resilient features are required to be inbuilt in the IAY houses in areas prone to natural calamities. q) Rural connectivity to provide all weather access, including culverts and roads (upto metalling stage) within a village, wherever necessary, under MGNREGA, subject to provisions of the Scheme. It will also be imminent to pursue convergence of various developmental schemes & programmes at both Central and State levels to minimise duplicity of efforts and investment in order to derive maximum results in managing drought with available resources. As enunciated in Manual for Drought management (2009), it is imperative to establish a dedicated Drought Monitoring Cell (DMC) at State level with requisite communication network to facilitate dissemination of the required information through Agricultural Extension agencies, Kisan Call Centres (KCC), Media Advisories, and Web Portal etc. The Control Room/Cells at Central and State Government levels may remain functional throughout the year and they can be suitably strengthened for effective management of drought. Drought being directly associated with climatic variability, it will be useful to strengthen existing institutional framework for monitoring, assessment and dissemination of real‐time forecast on drought. 2.5.2.6 NonStructural Mitigation Measures: 2.5.2.6.1 Enhancing management skills The non‐ structural measures envisage enhancing management skills to improve preparedness of vulnerable communities, Panchayati Raj Institutions (PRI), urban local 33
bodies and State authorities to mitigate the risks and respond effectively to drought situations. The following illustrative non‐structural measures may be considered to facilitate this: (i) Hazard‐zoning by the State Governments (identification of drought prone areas in 124 agro‐climatic zones) using ‘Vulnerability Mapping’ ( e.g. real time display of aridity maps, soil moisture stress maps, Normalized Difference Vegetation Index Maps, Normalized Difference Water Index Maps besides an e‐atlas for drought) and ‘Risk Assessment Analysis’ (e.g. standardization of risk assessment analysis in quantitative and qualitative terms as per the Manual for Drought Management); (ii) Preparation of inventory of resources by the State governments to meet likely emergency requirements of inputs (seeds, fertilizers etc.) and energy (power &diesel for pump sets), tankers & wagons (for drinking water movement), fodder availability (planning for movement from surplus areas including those from forest areas), availability of food grains and advance allocation plan, agricultural credit, planning for risk insurance etc. (iii) Knowledge networking of best practices both at the State and Central levels (e.g. experiences at international and national level on preventive measures, preparedness and mitigation, best practices at micro level by voluntary and non‐ governmental organizations in drought prone areas for sustenance of livelihood through watershed‐management projects, change of cultivation methods, use of modern irrigation methods such as drip irrigation etc.). As envisaged in the Manual for Drought Management (2009), the State Governments besides Panchayati Raj Institutions need to actively involve non‐governmental Organizations (NGOs) and Civil Society Organizations (CSOs) in effectively managing droughts by drawing upon their past experiences and best practices on drought mitigation. 2.5.2.6.2 NonStructural Measures: TechnoLegal Regime For creating an enabling environment for the mitigation measures existing laws including the following (illustrative) would need to be considered/reviewed/updated:‐
34
(i)
Revisiting Mahatma Gandhi National Rural Employment Guarantee Act/Operational Guidelines of MGNREGS to include/strengthen drought mitigation measures;
(ii)
Updating of State Scarcity Relief Manuals which replaced the erstwhile famine codes on the lines of Manual for Drought Management at National level;
(iii)
Establishing a definite procedure and fixing of time frame for attending to drought relief measures;
(iv)
Establishing an appropriate water regulatory regime in consultation with the States; and
(v)
Empowerment of Panchayats, Municipalities, Local bodies and inclusion of drought mitigation measures as part of their role in Eleventh and Twelfth Schedules of Constitution of India.
2.5.2.7 Awareness Generation The Manual for Drought Management (2009) envisages that the Central and State Governments should provide information on all aspects of drought to the people. It also suggests that the State Governments should develop a Drought Management Information System (DMIS) on different aspects of drought management. The DMIS along with (i) identification of vulnerable communities; (ii) sensitization programmes‐drought management educational programmes; (iii) training and capacity building of communities; and, (iv) media management will help in creating public awareness with special emphasis on risk reduction and preparedness to handle drought situation. 2.5.2.8 Research & Development (R&D) Large scale drought mitigation projects will have to be preceded by pilot /special studies and customised research programmes. An illustrative outline of such studies/programmes can be as under: (i)
Research programme in Agricultural Universities to study rainfall patterns and forecasting of drought at sub‐district level, in the chronically drought affected areas;
(ii)
Evaluation Programme for vulnerability and impact analysis of interventions by Central and State Government in drought affected States through reputed Institutes like National Institute of Nutrition, National Institute of Rural Development, MANAGE, etc., and
(iii)
Developing and introducing drought tolerant varieties of crops.
2.5.2.9 Community Participation Community participation is an essential feature of drought mitigation programmes. Rainwater harvesting holds the key to drought mitigation and the government policies emphasise community‐based water resource management. Women’s Self‐Help Groups (SHGs) can play an important role in a large number of measures targeted at drought mitigation. SHGs can be involved in rainwater harvesting, running PDS and day care centres and overseeing water distribution and utilization in their community. They will also take measures to promote greater equity and efficiency in natural resource management. Drought relief and mitigation measures shall be, to the extent possible, implemented through the Panchayati Raj Institutions in order to improve the efficacy of delivery. 2.5.3 Earthquake According to latest seismic zoning map brought out by the Bureau of Indian Standard (BIS), over 65 percent of the country is prone to earthquake of intensity Modified Mercalli Intensity Scale (MSK) VII or more. India has been divided into four seismic zones according to the maximum intensity of earthquake expected of these, zone V is the most active which comprises of whole of North‐east India, the northern portion of Bihar, Uttarakhand, Himachal Pradesh, J&K, Gujarat and Andaman & Nicobar Islands. India has highly populous cities. Construction activities in these cities, especially in seismic zone 4 and 5, must conform to the need to make the buildings earthquake resistant. Regulatory mechanisms 35
need to be improved significantly. Six major earthquakes have struck different parts of India over a span of the last 15 years. The entire Himalayan Region is considered to be vulnerable to high intensity earthquakes of a magnitude exceeding 8.0 on the Richter Scale. In a span of about 50 years, four such major earthquakes have occurred in the region: Shillong, 1897 (M8.7); Kangra, 1905 (M.8.0); Bihar–Nepal, 1934 (M 8.3); and Assam–Tibet, 1950 (M 8.6). Scientific publications have warned that very severe earthquakes are likely to occur any time in the Himalayan Region, which could adversely affect the lives of several million people in India. Critical Gaps:Seismic risk in the country has been increasing rapid in the recent years. The already existing seismic risk on account of geographical conditions in India has increased manifolds due to lack of earthquake preparedness, unregulated construction activities, lack of appropriate techno‐legal regime and lack of awareness amongst general public about earthquake risk mitigation measures. Some initiatives in the past have be undertaken to improve earthquake preparedness in India and create an enabling environment for preparation and implementation of earthquake risk management plan and improved seismic safety in the country. However, these initiatives are at nascent stage and a comprehensive framework for earthquake risk management is required to minimize the critical gaps. Some of the gaps observed from the past experiences are as given below: (i) Inadequate monitoring and enforcement of earthquake‐resistant building codes and town planning bye‐laws (ii) Lack of formal training among professionals in earthquake resistant construction practices (iii) Absence of earthquake resistant features in non‐engineered construction in sub‐ urban and rural areas. (iv) Inadequate attention to structural mitigation measures in the education syllabus (v) Lack of adequate awareness and preparedness among various stakeholder groups Nodal Agency: Ministry of Earth Sciences is the nodal agency for development and implementation of earthquake mitigation plan in the country in coordination with the State Governments/UTs. The National Disaster Management Authority (NDMA) has come out with guidelines for mitigation of earthquake. The six sets of critical interventions, which have been presented in the Guidelines as the six pillars of earthquake are as follows: (i) Ensure the incorporation of earthquake resistant design features for the construction of new structures. (ii) Facilitate selective strengthening and seismic retrofitting of existing priority and lifeline structures in earthquake‐prone areas. (iii) Improve the compliance regime through appropriate regulation and enforcement. (iv) Improve the awareness and preparedness of all stakeholders. (v) Introduce appropriate capacity development interventions for effective earthquake management (including education, training, R&D, and 36
(vi)
documentation). Strengthen the emergency response capability in earthquake‐prone areas.
2.5.3.1
Mitigation Measures
2.5.3.1.1 Strengthening of the Technolegal Regime and Regulatory Framework for Earthquake Resistant Design and Construction Practices:The approach to putting in place an appropriate techno‐legal regime revolves around three important components viz. adoption of earthquake safety codes & building byelaws, development of building codes for retrofitting, enforcement of seismic safe practices in various government & private agencies and availability of codes in public domain. Detail of each component is given as below: (i) Facilitate adoption of amendments in Town Planning Acts and Bye‐laws: It is proposed that the States and UTs falling under seismic zone III, IV and V shall adopt amendments in town planning acts, development control regulations and building bye‐laws for urban and semi‐urban and rural areas with latest revised BIS codes for safety against earthquake protection and “Model Building Bye‐laws and Town & Country Planning Acts for Earthquake Resistant Construction Practices in Urban and Rural Areas” constituted by Ministry of Home Affairs, GoI. (ii) Facilitate the development of building codes for retrofitting of buildings: A platform for collation and consolidation of recommendations to BIS for development of the codes for retrofitting of different types of buildings shall be constituted. (iii) Develop mechanism for enforcement of Techno‐legal regime: There is a need for development of a strong and effective compliance system through a combination of self‐certification, external performance review by accredited agencies, random structural safety audits and by involving a mechanism for fixing responsibilities of compliance by state agencies. (iv) Availability of BIS codes and Vulnerability Atlas by BMPTC in Public domain: In order to promote awareness towards structural safety, there is a need to have easy and free access of NBC, 2005 and Vulnerability Atlas of India at public portals and libraries. 2.5.3.1.2 Institutional Strengthening: Institutional strengthening involves assessment of the existing skills, knowledge base and infrastructural capacities of the participating institutions. This component will focus on institutional competency enhancement of the concerned institutions, setting up Centre of Excellence in the areas of earthquake risk mitigation and strengthening of State Disaster Management Authorities (SDMAs) and training institutes. A two way approach is proposed: (i) Strengthening of national level institutions: NIDM and other national level research, training and academic institutes shall be strengthened to impart training programmes to the government and non‐governmental stakeholders. A Centre for excellence in the area of Earthquake Risk Mitigation shall be established at national level which will be responsible to provide high‐end knowledge and training to the professionals and concerned stakeholders. 37
(ii)
Strengthening of state level institutions: SDMAs,Disaster Management Centres and other state level research, training and academic institutes will be identified and strengthened with the capacity to impart trainings to the construction based departments and private stakeholders.
2.5.3.1.3 Capacity Building Programmes for professionals of construction industry:For successful earthquake mitigation, it has to be ensured that all new constructions in the seismic zone are compliant with the Bureau of Indian Standards (BIS) Codes. Though BIS has laid down the national standards for construction in seismically vulnerable areas, the engineers, architects and masons practising in the private and public sector do not have sufficient knowledge of seismic safe designing and construction. This component will focus to provide training to the professionals involved into construction practices in private and public domain in earthquake resistant construction techniques. Certain activities which need to be carried out for capacity building may be as follows: (i) Conduct skill building programmes for engineers, architects and masons. Concerned government officials shall be trained as Master Trainers and they shall be made responsible to train other officials in their sectors. (ii) Preparation of training modules on various methods of retrofitting, seismic safe construction practices structures and structural auditors. (iii) Online programmes/ capsule courses on earthquake mitigation for public. (iv) Conduct quality assessment of training modules through feedback mechanism on the trainings, review the training outcomes and to provide completion certificates to those participants completing trainings. 2.5.3.1.4 Public Awareness: The main objective of the Public Awareness is to bring about an attitudinal change and to influence behaviour of individuals for effective earthquake risk mitigation that will take forward the communities for achieving goal for building safe and disaster resilient India. To achieve this, we need to create awareness about earthquake risk, vulnerability and safety measures at every level. Under this component awareness amongst stakeholders including community shall be created about safe construction, retrofitting‐ Do’s and Don'ts to an extent that it becomes part of the unconscious competence of all stakeholders. Some of the methods which shall be adopted for creation of Public awareness may be as follows: (i) Awareness through mass media campaign Electronic as well as print media shall be involved for promoting the cause through television, newspapers and radios/FM channels etc. (ii) Development of Information, Education and Communication (IEC) materials such as posters, booklets, broachers, fliers etc. on mitigation measures and shall be distributed in schools, academic institutes, public buildings and hospitals in vernacular languages. Large hoardings shall be placed in public places such as road sides, cinema halls, multiplexes, food joints etc. on safe construction practices. (iii) Advocacy & Knowledge sharing about safe construction practices Workshops, conferences, meetings and seminars etc. shall be conducted with 38
various stakeholders such as line departments, private firms, owners of hazardous installations, Residential Welfare Associations, Market Trade Unions, Professionals such as Architects, Engineers, Town Planners, Builders, Real Estate Managers etc. on various seismic resilient practices to be followed to avoid/reduce damages due to earthquake event. Information on the need for earthquake risk mitigation of life line buildings, houses, multi‐storied buildings, essential infrastructure such as schools, hospitals, bridges etc. shall be disseminated through professional bodies and decision makers. 2.5.3.1.5 Promotion of Research & Development Activities:In order to develop new knowledge & techniques on prevention and mitigation of earthquakes, rigorous research and development activities shall be sponsored and encourage in academic, research and technical institutions. The outcomes of this scientific research shall be shared in public domain in form of articles, papers and web portals etc. 2.5.3.1.6 Inclusion of Earthquake Mitigation measures in Education Sector: Education is a vital way to promote mitigation measures through making it part of curriculum at various academic levels viz., schools, under graduate colleges and technical courses etc. 2.5.3.1.7 Development of Procedures and Guidelines: Guidelines/standardize procedures shall be developed on the following subjects: (i) Guidelines for vulnerability assessment of lifeline structures and buildings: Guidelines/standardize procedures for undertaking structural vulnerability assessment of buildings including schools, hospitals, office buildings and other lifeline structures shall be developed and make available for use by the concerned stakeholders. These procedures will help in identifying vulnerable buildings/infrastructure for their restoration /retrofitting. (ii) Guidelines for Non‐structural Mitigation Measures: In India, Non‐structural Earthquake Mitigation Measures receive least priority due limited knowledge on the subject. Several studies indicate that during earthquakes/tremors, non‐structural contents increases extent of structural damages. In fact in case of low to medium intensity of earthquakes, it is seen that non‐structural elements causes more damage than structural elements. Hence, it is proposed to develop guidelines for adoption of Non‐structural mitigation measures and share them publicly. (iii) Guidelines for Retrofitting of Buildings & Lifeline structures: Another important aspect for earthquake mitigation is lack of knowledge on retrofitting methods of existing buildings and structures. For promoting awareness on retrofitting methods, it is proposed to develop guidelines on retrofitting of buildings and lifeline structure. 2.5.3.1.8 Earthquake Risk Assessment: In order to increase understanding of the earthquake hazard, exposure and vulnerability, a detailed earthquake risk assessment shall be conducted in all the states/UTs falling under zone III, IV and V. This component shall include gathering of data related to the past earthquakes, the exposure of assets to the 39
hazard and vulnerability of the exposed assets to the hazard. Activities to develop a building classification manual and undertake micro level assessments of highly exposed areas, including residential areas, public buildings, and critical infrastructure shall be included as a part of risk assessment study. Open source platforms for probabilistic risk analysis, which are modular and extensible such as the Comprehensive Approach to Probabilistic Risk Assessment (CAPRA), shall be used in prioritizing DRM investments. 2.5.3.1.9 Finance and Insurance: With increasing dependence on assistance from financial institutions due to rise in real estate and construction cost, new opportunity has arisen to implement seismic resistant design and seismic retrofitting of the critical and lifeline structures as a mandatory condition of any financial assistance scheme. Special financial schemes with incentives such as tax exemption should be available for housing societies and vulnerable communities to implement retrofitting/ seismic resistant design. Secondly innovative insurance products such as indices based products can act as a catalyst to improve the building resistance. Suitable micro finance schemes need to have flexible repayment schedules for recipients who have been affected by disaster. 2.5.3.2 Structural Measures: Earthquakes do not kill, but unsafe buildings building do. Therefore, the essential focus of Earthquake Risk Mitigation should be on strengthening the buildings and other infrastructure through various structural and non‐structural mitigation measures that can withstand the shocks of earthquake. This by no means is an easy tasks, as millions of buildings have already been constructed that do not conform to earthquake resistant standards and hundreds of new buildings are coming up that do not conform to the standards. In order to address this gamut task, following measures are proposed to be adopted (i) Strengthening of Public buildings and lifeline structures. All the essential government buildings, schools, hospitals, critical facilities, public utility structures etc. shall be strengthened by the means of retrofitting and restoration in a phased manner. (ii) Reconstruction of fragile structures: The public buildings which are in fragile conditions and not safe for occupying shall be identified and earmarked as unsafe constructions. These spaces shall be either reconstructed based on detailed seismic analysis or demolished on priority. (iii) SeismicityResilient Structures: The designs of all the new buildings and structures shall be engineered type and follow seismically safe construction practices. The new construction shall be scrutinized by the competent authorities through a General Compliance Review and mandatory technical audit process by qualified professionals shall be conducted. A third party audit of the design and construction of major construction projects may be undertaken by qualified accredited agencies for ensuring compliance with the techno‐legal regime. 2.5.4 Cyclone and wind hazards The major natural disaster that affects the coastal regions of India is cyclone and as India has a coastline of about 9,000 km; it is exposed to nearly 10 percent of the world’s tropical 40
cyclones. Thirteen coastal States and Union Territories (UTs) in the country, encompassing 84 coastal districts, are prone to tropical cyclones. Four States (Tamil Nadu, Andhra Pradesh, Odisha and West Bengal) and one UT (Puducherry) on the east coast and one state (Gujarat) on the west coast are more vulnerable. About 71% of the cyclone prone area is in ten states (Gujarat, Maharashtra, Goa, Karnataka, Kerala, Tamil Nadu, Pondicherry, Andhra Pradesh, Odisha and West Bengal). The islands of Andaman, Nicobar and Lakshadweep are also prone to cyclones. On an average, about five or six tropical cyclones form in the Bay of Bengal and Arabian sea and hit the coast every year. Out of these, two or three are severe. When a cyclone approaches the land mass, a risk of serious loss or damage arises from the severe winds, heavy rainfall, storm surges and river floods. The effects of a storm surge are most pronounced in wide and shallow bays exposed to cyclones such as in the northern part of Bay of Bengal. On an average, five or six tropical cyclones form every year, of which two or three could be severe. Most cyclones occur in the Bay of Bengal followed by those in the Arabian Sea and the ratio is approximately 4:1. The incidence of cyclonic storms, with wind speeds between 34 knots and 63 knots and severe cyclone storm with wind speeds between 64 knots and 89 knots, reaching Tamil Nadu and Andhra Pradesh is high during the north east monsoon season i.e. October – December, whereas the highest annual number of storms, severe storms occur in the Odisha ‐ West Bengal coast. The yearly distribution of tropical cyclones in the north Indian Ocean indicates large year‐to‐year variations in the frequency of cyclonic disturbances and tropical cyclones, but no distinct periodicity. The annual average of cyclonic disturbances in the North Indian Ocean is about 15.7 with a standard deviation of 3.1. The annual number of cyclonic disturbances range from seven in 1984 to twenty three in 1927. The annual average of tropical cyclones has varied from one in 1949 to ten in 1893, 1926, 1930 and 1976). 2.5.4.1 Cyclone risk mitigation measures: The NDMA has prepared the guidelines for management of cyclone disaster. The guidelines explicitly deals with structural measures for preparedness and mitigation, covering Early Warning Systems (EWS), warning dissemination for cyclone, cyclone shelters, buildings, road links, culverts and bridges, canals, drains, saline embankments surface water tanks, cattle mounds, management of coastal zones, sustainability of coastal resources, bio shields, coastal flood plain management, coastal erosion, natural resources management, etc. Among the non‐structural measures, the guidelines focus on awareness and education, risk assessment and analysis and capacity development. The National cyclone Mitigation plan needs to integrate the mitigation measures for reducing the risk caused due to cyclones. 2.5.4.1.1 NonStructural Measures a. Risk Mapping, Assessment and Analysis :The first and probably the most complex task of cyclone mitigation is to map the hazard, risks and vulnerabilities of cyclone at all levels, analyse and assess the levels of risks and monitor it continuously. It is only on the basis of such a knowledge base that a proper and effective strategy for cyclone risk mitigation can be developed. Atmospheric and 41
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remote sensing sciences have made a huge progress in the understanding of the phenomenon of cyclones. Satellite images can spot the development of low pressure zones, Doppler radars can track them down and instrumented aircrafts can reach the cyclone eye, eye walls and spiral bands to transmit data on wind velocity, pressure and moisture contents of the low pressure zones. Powerful tools are available to analyse the data to make fairly accurate forecasts on the intensity, direction and location of the landfall and the likely areas to be affected by winds, rain and storm surges. The time series data on cyclones can be utilized to map and zone the areas prone to the hazards of cyclone. Such maps can be integrated with various spatial data with socio‐economic, housing, infrastructure and other variables that can provide a quick assessment of the risks and vulnerabilities of cyclones based on which appropriate mitigation strategies can be developed. b. Advanced Early Warning Systems:Early warning of cyclones and its dissemination to the coastal habitations is an important preparatory measure to reduce the losses of life and property during cyclones. Due to heavy investments involved in the installation, operation and management of modern early warning system, it is also considered as an essential component of structural mitigation. With the rapid development of science and technology the early warning and communication system is undergoing changes. Powerful Doppler radar systems can now track the movement of atmospheric depression and accurate early warnings can be issued 48‐72 hours in advance about the probability of cyclone, its intensity and wind speed, direction and possible location of the land fall. Such warnings are broadcast through the radio and television network for the information of people in the coastal areas. Based on the data generated by the system numerical modelling on storm surge and flooding can forecast the inundation level from where the affected population can be evacuated to safer places. There are hundreds of such instances where early warning helped to save thousands of lives in the coastal areas. However, inaccuracies in the modelling exercises have some time led to exaggerated responses leading to unnecessary evacuation of hundreds of persons which could have been avoided. Such inaccurate predictions some time reduce the faith of coastal communities on the early warning system, which need to be avoided at any cost. It is expected that with further advances of early warning technology the predictions would be more and more accurate leading to better responses in emergency situations. c. Warning Communication:The communication infrastructure is a pre‐requisite for proper functioning of the cyclone warning and DM system. The existing communication infrastructure has evolved over a period of time using various communication technologies available from time to time. Few of the methods of communication which can be used for disseminating warning are as follows: (i)
DirecttoHome (DTH) Services:DTH service provides different language channels in every nook and corner of the country. The most significant aspect of DTH broadcast is its digital quality, fail‐proof communication. Apart from the DTH service of Prasar Bharati (PB),
(ii)
(iii)
(iv)
(v)
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private broadcasters like Dish TV and Tata Sky also provide services on different television channels all over the country. These means can be utilized for dissemination of cyclone warning and weather forecasting. World Space Satellite based Digital Broadcast Service:IMD has started a new meteorological data and processed products broadcasting service from 1 July 2003 using the World Space ‘Asia Star’ satellite. This is a replacement of the HF broadcast system which has become outdated. The receiving system consists of a satellite receiver and a Digital Data Adaptor (DDA) designed exclusively to work with the World Space Satellite System and can be used to visualise data, satellite images, weather charts, automatic plotting of data, analysis and manipulation of data for the benefit of weather forecasters and other users. This could be considered as an alternative option. Community Radios: Community Radio is defined as radio that is owned by the community and airs programmes designed and produced by it specifically for its own developmental needs. The communities that produce these radio programmes cablecast, narrowcast or buy time from the AIR local radio stations. These radios can be used to increase the outreach of warnings. Satellite Phone Services: Satellite phone services are communication systems which provide clear data communication facility having mobility and reliability, even in areas of total devastation and in areas where even electricity is not available. Satellite portable phones work like cellular phones where cellular coverage is available, and as satellite phones where it is absent. Development of New Technologies: The entire disaster mitigation plan must necessarily be anchored to frontline research and development in a holistic mode. State‐of‐the‐art technologies available worldwide may be made available in India for up gradation of the existing DM system. At the same time, dedicated research activities may be encouraged in all frontier areas related to disasters, for a continuous flow of high quality basic information for sound DM planning. Last Mile Connectivity:Coastal states and UTs can explore and adopt appropriate options offered by Governments and corporate according to local suitability to establish the desired last mile connectivity for cyclone warning communication and dissemination. Others: Ham radio, Mobile Phones, cell broadcast, internet and news on phone are other methods that could facilitate better dissemination of early warning to the isolated coastal communities particularly in remote islands.
d. Community Based Disaster Preparedness (CBDP):Communities are the first real time responder to any disaster situation. However developed or efficient a response mechanism could be there would always be a time gap between the 43
disaster and the actual response from the government and other agencies. Therefore, if the communities are mobilized and trained to assess their own risk through participatory risk assessment process, develop their own contingency plans and set up their own teams for evacuation, search and rescue, emergency shelter, first aid etc., the risks of cyclones can be managed with significant reduction in number of deaths and injuries. CBDP programme could make a drastic reduction in the risks of cyclonic disasters. Therefore, CBDP has been adopted as an important strategy for disaster risk management particularly in the coastal areas.
e. Risk Transfer and Risk Financing:Mounting economic losses due to cyclones cannot be compensated by the Government whose role would be limited to providing ex‐gratia relief to the next of kin of persons who have died or to those sustained injuries and to provide support for the reconstruction of houses and livelihood regeneration for the poor and lower middle class people. The risks of industrial, commercial and other infrastructure and assets in the private and household sector can only be secured through the mechanism of risk financing and risk insurance only.
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f. Capacity Development:Capacity development is the most cost effective method of reducing the vulnerabilities of the people living in the coastal areas. The coastal communities have a certain degree of capacities built into their social systems and practices acquired through inherited experiences of generations. However, the local capacities have to be continuously upgraded and further developed according to the changing needs and the developments of science and technology and other improved practices in various sectors. Such capacities can be developed through meetings, interactions, discussions, exposure visits and trainings. Training is particularly necessary for cutting edge functionaries within and outside the government at various levels in different sectors to impart them with necessary skill for cyclone risk reduction and management. Training programmes have to be practical, scenario based and exercise and problem solving oriented so that the functionaries are aware of their specific responsibilities and are able to discharge those responsibilities efficiently before, during and after the cyclonic disasters. Training is also required for those community members who would be part of the community response teams for the initial critical hours and days till specialized assistance from the government and non‐governmental agencies from the outside are organized. Such trainings may include maroon search and rescue, first aid, evacuation, temporary shelter management, arrangements of drinking water and sanitation, provision of cooked food etc. Such trainings can be better organized by a core group of community trainers who can be trained intensively by the specialized government and non‐government agencies. g. Awareness and Education: Awareness generation sensitizes common masses about the risks, vulnerabilities of cyclones and the preventive, mitigation and preparedness measures that can be taken at the government, community, household and individual level. Electronic, print and folk media can play
important roles in awareness generation on a large scale. Awareness and sensitization programme can also be organized for more specific and limited audience such as parliamentarians, policy makers, media and other selected audience. Cyclone education programme, on the contrary, would be more formalized curriculum which can be institutionalized within the education system at various levels. Disaster management has already been included in the educational curriculum of the schools in many countries and cyclone risk mitigation can be a part of such curriculum. Various branches of science and technology can have course modules on Cyclone Risk Management. For example, civil engineering and architectural courses can have curriculum on cyclone resistant housing and infrastructure. Medical and mental health sciences can have course module on emergency health and trauma management for cyclone affected people, while IT and Communication sciences may have courses on Early Warning and Communication. 2.5.4.1.2 Structural Measures a) Sea Wall and Saline Water Embankment:Among the structural mitigation measures sea walls and saline water embankments are probably the most effective and capital intensive investment to mitigate the risks of cyclones. A seawall is a coastal defence constructed usually of reinforced concrete on the inland part of a coast to prevent the ingress of storm surges arising out of cyclones. Sometimes the sea wall is constructed with a multiple purpose of reclaiming low lying land or preventing coastal erosion. The height of sea walls is determined according to the maximum observed height of storm surges which may be as high as 10 meters. Therefore sea walls are usually massive structures which can be built only with a heavy investment. Maintenance of such structures further requires recurrent expenditure. Hence sea walls along the entire coast are never a practicable solution to prevent or mitigate storm surges, but such walls are recommended when valuable assets like a city or a harbour is to be protected. Sea walls can be vertical, sloping or curved. Modern concrete sea walls tend to be curved to deflect the wave energy back out to sea, reducing the force. There are instances of many sea walls which were constructed after devastating cyclones and which successfully prevented such disasters. b) BioShields: Bio shields usually consist of mangroves, casuarinas salicornia, laucaena, atriplex, palms, bamboo and other tree species and halophytes and other shrub species that inhabit lower tidal zones. These can block or buffer wave action with their stems, which can measure up to 30 meter high and several meters in circumference. They trap sediment in their roots; thereby maintain a shallow slope on the seabed that absorbs the energy of tidal surges. They also break the high velocity of winds and thus protect agricultural crops and shelters besides providing shelter and grazing lands for the livestock and farms. They reduce evaporation from the soil, transpiration from the plants and moderate extreme temperatures. They protect fertile coastal agricultural land from erosion. They also serve as carbon sinks as they help enhance carbon sequestration which makes coastal communities eligible for carbon credit to earn additional income. 45
c) Other Structural Measures
(i)
(ii)
(iii) (iv)
(v)
(vi)
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Cyclone Shelters: A robust system of locating cyclone shelters and cattle mounds may be established based on the vulnerability profile of the regions along with the prescribed structural safety standards. Necessary mechanism may be built to account for the basic needs and maintenance requirements along with special design considerations. Structural safety of lifeline structures:The structural safety of lifeline infrastructure may be made the centre stage of disaster risk reduction with the mandatory techno‐legal support framework based on the Indian Building Codes and Standards and IRC Specifications. Implementation of structural design standards:Local communities may be encouraged to follow prescribed cyclone resistant structural design standards for construction of private houses. Maintenance of Cyclone Shelters: The following maintenance aspects of cyclone shelters and other safe places at the ULB/PRI level may be institutionalised: Making adequate provision for maintenance of shelters by states and Union Territories and ensuring its multi‐purpose utilization. A periodical assessment system of the conditions of existing cyclone shelters by the line departments. Adequate maintenance arrangements for schools, hospitals and places of worship by the local committees with the assistance of the government. Making adequate provisions of amenities in cyclone shelters such as drinking water, bathing and toilet facilities for large number of people during the disaster phase taking into consideration requirements of women, children, aged and physically challenged people Community based initiatives of the multi‐purpose shelters during the normal times i.e. outside the monsoon season. Mainstreaming cyclone resistant designs in housing schemes: Cyclone resistant design standards may be incorporated in the rural housing schemes like the Indira Awas Yojana (IAY) and Jawaharlal Nehru National Urban Renewal Mission (JNNURM) projects planned for coastal urban areas. Housing schemes under different central/ state government programmes may obtain clearance from competent authorities, who will take into consideration all DM related aspects. Construction of Allweather roads:All‐weather road links may be built to all coastal habitations, between habitations and cyclone shelters/cattle mounds covering all coastal districts vulnerable to cyclones, along with a regular mechanism to review the conditions of critical road links, culverts and bridges every quarter.The Pradhan Mantri Gram Sadak Yojana provides for construction of those routes of the Core Network that include the Village Panchayat Headquarters or Market Centres or other educational or medical essential services or those which stand notified by the State Government as places of tourist interest, irrespective of the population size. Maintenance of carrying capacity of drainage systems:Full carrying
capacity of main drains and canals, along with feeder primary/ secondary/tertiary channels may be maintained. In addition, drains will be widened for additional carrying capacity
2.5.5 Landslides Landslides are one of the natural hazards that affect at least 15 % of the land area of our country‐ an area which exceeds 0.49 million km². Landslides of different types are frequent in geo‐dynamically active domains in the Himalayan and Arakan‐Yoma belt of the North‐ Eastern parts of the country as well as in the relatively stable domains of the Meghalaya Plateau, Western Ghats and Nilgiri Hills. In India most of the landslides occur during the monsoon period barring a few which owe their origin to earthquake. Pore water pressure plays a major role initiating landslide events. There are also instances where toe erosion by rivers or nalas and scouring of hill slope due to high velocity discharge of streams descending from the crown of the landslide gives rise to debris flow/slide or rock slide. Hence, surface and sub‐surface water management from the slopes or catchments forms the most effective remediation measure for controlling many landslides. Management of surface run‐off and subsurface water is done through the construction of drainage network. Reinforcing technologies like nailing, bolting, anchoring and tie back solutions have all provided apt solutions to bewildering varieties of Civil and Mining Engineering problems. Numerous successful examples of stabilisation of problematic slopes and landslides, open cast mines, tunnels, road cuttings, wharf and retaining structures, etc., bear ample testimony to the great potential the reinforcing technologies hold. 2.5.5.1 Structural Mitigation Remediation practices, including slope geometry correction, providing protection to the toe of slope by retaining structures, management of the surface and subsurface water slope including development of pore pressures, nailing, bolting, anchoring, micro piling, application of geo‐grids and geo‐textiles and afforestation, constitute powerful elements of most geotechnical packages commonly used for improving stability of problematic slopes and landslides in India. As a nodal agency on landslides, Geological Survey of India mainly deals with landslide hazards. Both pre and post hazards are being dealt by GSI through annual field season programme. According to NDMA guidelines, Landslide risk treatment is the ultimate objective of the risk management process which aims to mitigate the effects of the hazard. Both structural and non structural measures can be opted for reducing Landslide risk. Various slope stabilisation methods can be opted to reduce Landslide risks 1) Control Works: Control Works involving modifications of the natural conditions of landslides such as topography, geology, ground water, and other conditions that indirectly control portions of the entire landslide movement. These include drainage control works, soil/ debris removal works, buttress fill works and river training works. Soil/ debris removal works are the treatment measures that yield most reliable results and generally can be expected to be very effective in case of small to 47
medium sized landslides. The soil/ debris removal or offloading of the slide mass is generally undertaken from the crown portion downwards and in this process, benches of are created at appropriate intervals depending on the properties of the material. 2) Restraint Works The restraint Works rely directly on the construction of structural elements with a view to improve the stability of sliding mass. These include pile works that act as keys to tie together the moving landslide and the stable ground to restrain the movement, the anchors and bolts works that utilise the tensile force of anchor bodies embedded through the slide mass and into stable earth and construction of retaining and breast walls to prevent smaller sized and secondary landslides that often occur along the toe portion of the larger landslides. 3) Slope Protection Works Once treatment measures have been implemented on a landslide, the treated slopes are required to be protected against the effects of atmospheric agencies like rains, snow fall etc. This requires minimizing of direct exposure of a treated slope to the natural atmospheric processes which can be achieved by providing a protective covering to the treated slope. The covering commonly provided to the slopes includes afforestation that not only provides effective covering to the slopes but also improves the shear strength of the material through network of their roots. Shotcreting with or without a chain link fabric wire‐ mesh is very effective in protecting slopes with weathered rocks. Drainage holes can be provided along with it. Covering the slope surface with geo‐fabrics made of natural as well as synthetic material is also commonly used in slope protection works. 2.5.5.2 NonStructural Mitigation: Five non structural interventions which can be opted individually or in combination to mitigate impacts are given below:‐ 1) Restricting Development in LandslideProne Areas: Land use planning is one of the most effective and economical ways to reduce landslide losses by avoiding the hazard and minimizing the risk. This is accomplished by removing or converting existing development or discouraging or regulating new development in unstable areas. However, in many States in our country, there are no widely accepted procedures or regulations for landslides. 2) Codes for Excavation, Construction, and Grading: Excavation, construction and grading codes have been developed in many countries for construction in landslide‐ prone areas. There is no nationwide uniform code to ensure standardization in India. 3) Protecting Existing Development: Control of surface water and groundwater drainage is the most widely used and generally the most successful slope‐ stabilization method. Stability of a slope can be increased by removing all or part of a landslide mass, or by adding earth buttresses placed at the toes of potential slope failures. Restraining walls, piles, caissons, or rock anchors, are commonly used to prevent or control slope movement. In most cases, combinations of these measures are used. 4) Monitoring and Warning Systems: Monitoring and warning systems are utilized to protect lives and property, not to prevent landslides. However, these systems often 48
provide warning of slope movement in time to allow the construction of physical measures that will reduce the immediate or long‐term hazard. Site‐specific monitoring techniques include field observation and the use of various ground motion instruments, trip wires, radar, laser beams, and vibration meters. Data from these devices can be telemetered for real‐time warning. 5) Landslide insurance and compensation for losses: Landslide insurance would be a logical means to provide compensation and incentive to avoid or mitigate the hazard. Landslide insurance coverage could be made a requirement for mortgage loans. Controls on building, development, and property maintenance would need to accompany the mandatory insurance. Insurance and appropriate government intervention can work together, each complementing the other in reducing losses and compensating victims. 2.5.6 Avalanche s The portion of earth where water exists in solid form is called Cryosphere. It includes glaciers, ice caps & sheets (including sea, lake and river ice), snow cover (seasonal) and seasonally frozen ground (permafrost). Cryosphere apart from being beneficial to mankind has on the other hand natural hazards associated with it also. These hazards mainly include snow avalanches, icebergs and floods (glacial lake failure). They result in huge loss to life and property around the globe. During winter, melt and refreeze process has potential to damage roads and structures. India, due to its diverse climatic and topographic conditions is one of the most disaster prone areas of the world. At the one hand it is vulnerable to storms from both the Arabian Sea and Bay of Bengal, crustal movements in the Himalayas resulting to earthquakes, floods in Eastern parts, droughts in southern and North West regions to avalanches in Himalayas. Himalayas experiences severe snowfall of varying magnitudes during the winter period. The snow accumulation depends on altitude and other geographical parameters of the region. The unstable snow pack results in avalanches that besides causing loss to human lives and property also creates a lot of hindrance in transportation & communication. A snow avalanche is defined as down‐slope moving mass of snow bringing along‐with it debris capable of damaging anything coming its way such as roads, railways, infrastructure (houses, buildings and bridges), forest trees etc. It generally occurs when: (a) The weight of the snowpack (tensile forces) fails the shear strength of snow layers. (b) Slab of snow breaks free from the layers beneath. (c) Snowpack becomes saturated with water percolation and thus weakens. A snow avalanche has three zones viz., (i) Formation zone‐ where from it develops and originates, (ii) Middle zone‐ central portion of avalanche path and (iii) Run out zone‐ where avalanche comes to halt usually a valley bottom. Note: * The Avalanche Mitigation Plan is prepared by SASE, Chandigarh and is yet to be approved by the Ministry of Defence (MoD).
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Fig 2: Zones of avalanche path Avalanches are common above 3500m elevation and frequent on slopes of 30‐45° with majority occurring at 390 slopes. North facing slopes have avalanches in winter and south facing slopes during spring. Convex slopes and those covered with grass are more prone to avalanches. Chances of surviving an avalanche are bleak. About 20% of buried people die immediately before they can be saved. As per our record, averages of around 20 people are killed every year due to avalanches in various zones of the Himalayas, besides damaging the properties. Depending upon the type of snow involved, avalanches can be divided into two main categories: dry snow and wet snow avalanches. The maximum numbers of casualties due to avalanches were reported during the winter 1978‐79 when over 285 human lives were lost in J&K, HP and UP hills followed by 233 & 326 during the year 1982‐83 & 1987‐88 respectively. In November 1986, an early snowfall event triggered a few avalanches and blocked Zojiia Pass in J&K followed by a severe snow blizzard. Good deal of life &property was lost. Avalanches have also affected the settlements around the shrines of Badrinath and Kedarnath in Uttarakhand. In J&K, the most affected areas are in the higher reaches of the Kashmir and Gurez valleys, Kargil, Ladakh and Siachen glacier area. In Himachal Pradesh Chamba, Kullu, Lahul‐Spiti and Kinnaur and in Uttrakhand, parts of Tehri Garhwal and Chamoli districts are vulnerable to avalanches. Few regions of north east Sikkim are also affected by avalanches during winter months. 2.5.6.1 Role of Snow & Avalanche Study Establishment (SASE) in avalanche hazard mitigation:Snow and Avalanche Study Establishment (SASE), is the agency, under the Ministry of Defence dedicated to the study of avalanche related hazards and their mitigation in India. Avalanche forecasting, artificial triggering, structural control and generating awareness are prominent part of SASE’s activities. A vast network of high altitude observatories has been established to collect snow and meteorological data. A large area of the Western Himalayas, comprising eleven major road axes and numerous tracks are being covered to forewarn the people of the impending avalanche danger. Mountain Met Centres (MMC) have been set up at Jammu, Srinagar & Partapur sector in J&K(Fig 3).
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Figure: SASE’s area of Operation
Focusing on its primary role of avalanche mitigation through various control measures, SASE has taken a lead in defining the properties of a complex material, that is, snow on earth. Mountain weather forecasting is an important activity being undertaken by SASE. Functional role of SASE is as below: To provide precise Avalanche and Weather forecast. Avalanche Awareness among users. Controlled release of Avalanches. Design and Development of Avalanche Control Structures. Remote sensing & instruments for mountain terrain/snow study. Provide advice to BRO, J&K Govt., HP Govt. and Uttarakhand Govt. regarding snow avalanches. Basic research on Snow Science. Cold region data bank for Himalayan region. Various infrastructural facilities that are now available at SASE include: Cold laboratory operating at ‐400C at Manali. Two advance field research stations at Patsio & Dhundi with cold chambers. More than 50 state of art observatories and AWSs. Electronics and instrumentation centre. Snow Physics Computer centre. Technical information centre. Data receiving and communication centre. Internet & DRONA. Automatic Weather stations. Earth receiving station. Three upper air stations. 51
High speed computer centre. Avalanche forecasting and mountain met centres at Chandigarh, Siachen, Jammu & Srinagar. Avalanche display room. Snow hospital(5 bedded) at Manali. Avalanche auditorium. Snow chute at Dhundi(H.P). 2.5.6.2 Management of avalanche hazards: Avalanches have, and may take, toll of life and property. They sometimes follow paths which, on the basis of previous experience, have not previously been considered to be avalanche paths. The threat of an avalanche depends not only on weather conditions, but also on the snowpack stability. Venturing in snow bound areas without this information poses great risk. 2.5.6.2.1
Risk management involves taking into consideration the following:
(i) Occurrence – Past events are indicators of the type and extent of losses. It helps to evaluate the probability of future occurrences. (ii) Vulnerability – The percentage of people and property that would be affected by the hazard event leads to assess the preparedness for the hazard. Moreover, fatalities, property and economic loss leads to the assessment of the impact of disaster. 2.5.6.2.2 Owing to their nature of recurrence, avalanche hazard mitigation is done through following methods. a. Active method: Active methods generally include installing permanent control structures, afforestation and artificial release of avalanches. These methods are however cost effective and very difficult to execute due to the peculiarities of the terrain. Logistic problems also restrict executing these methods in inaccessible areas. Methods like structural control or afforestation arrest the creep and glide motions of snow on slopes while as retarding and diversionary structures retard/divert a flowing avalanche. Artificial triggering is one of the cheapest, surest and safest active methods of controlling an avalanche. It helps in bringing down the avalanches before they build up massively. Explosives are used by lobbing, firing, hand placing etc. Avdhav Visphotak Vahan(AVV) has been installed at Banihal(J&K) to carry out artificial triggering for the safety of famous Jawahar Tunnel on NH‐1A. With the help of a cableway, the explosive charge is carried on a winding rope over the blasting location in the area of snow cover where avalanche is intended to start. The charge is lowered to the correct height above the site selected for the explosion with the help of a motor which unwinds the string. The use of cableways makes it possible to carry out the blasting from a safe position, even with poor visibility, by day or night. b. Passive Methods: Passive methods include increasing awareness about the avalanche hazard by timely forecasting of avalanche danger and imparting 52
training on safety and rescue methods. This is the easiest way for mitigating the avalanche threat. People are warned of impending danger after analysing the snow/meteorological data and avalanche forecast models (Fig 4). Satellite imageries and other products viz., wind charts and weather models are also studied/consulted for daily weather forecasting. Mitigation and Prevention Measures:
2.5.6.3 (i). Avalanche mapping/atlases: A number of highways and lateral road axes in Jammu and Kashmir, Himachal Pradesh and Uttarakhand have been identified and avalanche sites along them registered. Details of snow avalanche paths, snow drift deposition/ice formation sites, frequency/severity of avalanche activity, extent up to which highways/roads/tracks are affected and proposed control measures, etc are documented in a form of atlas and data cards. (ii). Observatory network: About 50 Manualand an equal number of Automatic Weather Stations (AWS) have been established in high altitude regions of Jammu and Kashmir, Himachal Pradesh and Uttarakhand for acquiring uninterrupted snow and meteorological data. This data aids in avalanche and weather forecasting. Two AWS are installed in Antarctica for studying mass balance and energy balance of antarctic ice sheet. (iii). Avalanche forecasting: Avalanche forecasting programmes initiated include issuing avalanche warning bulletins to enable users plan their activities. Media is also appraised of the same for its onward broadcast. (iv). Avalanche hazard mitigation: Avalanche control structures have been successfully designed and installed at different places in J&K and Himachal Pradesh. These include: a. Formation zone structures like snow rakes, snow bridges and snow nets. b. Middle zone control structures like diversion walls. c. Runout zone control structures like mounds and catch dams. A snow gallery has also been designed and constructed as a middle zone control structure at one of the avalanche site near Dhundi in Himachal Pradesh.
Figure:
Avalanche control structures
in
d. Awareness programme: Establishment of new camping sites snowbound/mountainous areas. e. Snow hydrology: Snow hydrology related studies for snow melt run‐off 53
f. g.
h. i.
predictions in the Beas Basin have been carried out. Models: Development of avalanche/weather forecasting and snow cover models. Remote sensing applications: Full fledged remote sensing lab has been established for understanding spatial/temporal properties and variability of snow cover. Remote sensing data is used extensively to delineate terrain features and understand spatial and temporal variability of snow cover. Collaboration: Collaboration with Indian universities and institutes for advanced research on snow science and with SFISAR, Switzerland for snow related research activities of mutual interest. Development: Vihang Netra(unmanned aerial vehicle) has been developed for snow studies.
2.5.7 Heat wave Extreme positive departures from the normal maximum temperature result in a heat wave during the summer season. The rising maximum temperature during the pre‐monsoon months often continues till June, in rare cases till July, over the north‐western parts of the country. Slow and silent, a heat wave does not descend upon a city with the fury of a tornado, hurricane, or a winter storm. It moves over an area as a large, deep air mass with descending air, retarding the development of any significant precipitation that would provide relief to the ground surface's rising temperatures. As this air mass moves slowly or just sits over one area for days or even weeks, its rising surface temperatures begin to take their toll on the people who are trapped in it. Although heat waves are not often taken as seriously as other forms of severe weather the mortality from them is greater than the number of lives claimed by lightening, hurricanes and tornado. During 1979 to 2008, there were 933 heat waves in various States of the Country and 8073 persons died. In recent years, heat wave induced casualties have some what increased. Abnormally high temperatures were observed during April 2002 across the country. This number does not include the number of excess deaths of people already in poor health, whose deaths may have been advanced by exposure to extreme heat. Despite the presence of improving technology (e.g., air conditioning, architectural design, and improved accuracy in weather forecasting), heat waves continue to take many lives. On 10th May 2002, the maximum temperature at Gannavaram (Vijayawada) 49°C (WMO 2003) was recorded. Decrease in the Diurnal Temperature Range (DTR) due to urbanisation is a new factor leading to human mortality and discomfort. Increased minimum temperatures in summer do not allow the necessary nocturnal cooling to neutralize the high maximum temperature during a heat wave epoch. Aside from being a major health hazard, heat waves also put heavy stress on our energy resources. It is often the case when an intense heat wave occurs, thousands or even millions of people in a given region run their air conditioners at the same time. During past heat waves, power companies have often had to engage in a series of "rolling blackouts" to prevent a total blackout over the affected region. This is a critical issue, because if a total blackout occurs over a given region, the heat wave then becomes a health hazard to the entire population. 54
Heat Disorder Symptoms Sunburn: Swelling of skin, blisters, fever, headaches. First Aid: Ointments for mild cases if blisters appear and do not break. Heat Cramps: Painful spasms usually in the muscles of legs and abdomen. Heavy sweating. Heat Exhaustion: Heavy sweating, weakness, skin cold, pale and clammy. Pulse thready. Normal temperature possible. Fainting and vomiting. Heat Stroke (or sunstroke): High body temperature (106° F or higher). Hot dry skin. Rapid and strong pulse. Possible unconsciousness. 2.5.7.1 Mitigation Measures to deal with heat wave: The following are important measures that could be considered: To develop an accurate and timely alert system with a view to predict extreme heat events one to five days in advance. Identifying vulnerable groups and their locations so to focus efforts on these areas; Establishing and facilitating access to safe public shelters. Ensuring real‐time public access information about the risks of extreme heat through broadcast media, web sites, toll‐free phone lines and other means. Establishing systems to alert public health officials about high‐risk individuals or those in distress during an extreme heat event. Directly assessing and, if needed, intervening on behalf of vulnerable populations. To setup a body to coordinate efforts among and different agencies. To develop short, medium and long‐term strategies to reduce indoor heat exposure. Long‐term urban planning to reduce the urban heat island effect. To incorporate a variety of urban design strategies that includes external shading and insulation to reduce indoor temperature. To formulate a scheme like “Apathbandhu Scheme” being in operation in Andhra Pradesh since 2011‐12 to provide compensation through insurance company. To identify water scarcity areas in advance and supply of water for drinking and other uses through tankers to those areas shall be insured. Urban Local Bodies shall place water tanks in public places like markets, bus stands, schools, colleges and other congregation points. To restrict timings of public transports, engagement of labourers/workmen at construction sites etc during 11.00 am to 3.00 pm during severe heat wave conditions. Heat wave warning shall be issued by IMD on regular basis and State Emergency Operation Centres shall be in contact with IMD to receive such information and disseminate it to the public. 2.5.8 Cold Waves / Frost 2.5.8.1 Context Cold wave/frost is a localised seasonal phenomenon prevalent in the country except in Southern India. Frost damage to crops occurs when moisture within the plant is frozen, gets crystallized and expands. This causes cells to rupture and fluid to leak out, thus the watery 55
appearance of plant tissue or seed after a damaging frost. Different parts of plant, different stages of development of plant, and different types of plants can have varying levels of these ‘antifreeze’ compounds that result in a range of susceptibility to frost. The extent of damage caused by cold wave depends on temperature, length of exposure, humidity levels, and the speed at which freezing temperature is reached. It is difficult to predict a definite temperature level up to which crops can tolerate cold wave/frost because many other factors also affect it. For example, when air temperature reaches zero (0) degree centigrade, crop itself can be 4 or 5 degree cooler, because plants lose heat faster than the surrounding air temperature. Frost and cold waves greatly impacts pulse crops. During flowering stages, these crops are likely to be adversely affected at temperature of ‐2 to ‐3 degree C. Those in podding stage are a bit more tolerant but are likely to be damaged at a temperature of ‐3 to ‐4 degree C. As pulses often mature from bottom of the plant towards the top, frost injury may be much greater on plant tops. 2.5.8.2 Mitigation Measures for Crops: Department of Agriculture & Cooperation, Ministry of Agriculture closely monitors cold wave situation in consultation with India Meteorological Department (IMD) and State Governments. In case of cold wave/frost situation, States needs to initiate location specific measures as outlined in District Crop Contingency Plans and in consultation with respective State Agricultural Universities to minimise its impact. Farmers are to provide light irrigation as per need, immediately prune damaged tips of branches or shoot, burn leave/waste material in the orchard to create smoke and manage rejuvenation of damaged crops through pruning of dead material, application of extra doses of fertilizer through foliar sprays. Illustrative example of mitigation measures during different vegetative stages are as under: Stages of plant Sl. No Measures to be taken by farmers growth Seedling/ Nursery Change of micro climate by smoking around the 1 Stage field especially during night. Irrigating the field, smoking the field during 2 Vegetative Stage night. 3 Reproductive Stage Harvest the crop at physiological maturity 4 Harvesting Stage stage Crops: Soybean, Maize, Jowar, Arhar, Cotton, Chick Pea, Wheat etc. (Source: Contingency Plan developed by Central Research Institute for Dryland Agriculture (CRIDA), available at http://www.crida.in/) As Cold Wave/Frost is a localised disaster event, location specific mitigation plans are to be drawn up by the concerned State Governments instead of a National level plan. 2.5.9 Epidemics India is endemic to many diseases such as Malaria, Kala‐azar, Cholera, and Tuberculosis. 56
These erupt in epidemic form when conditions are favourable for their spread. Epidemics are disasters by themselves but these can emerge in the aftermath of other disasters as well. Several factors related to microbes, environment and host susceptibility contribute to the occurrence of epidemics. Because of prevalence of these factors, India is frequently affected by epidemics/ outbreaks which result in high morbidity and mortality and affect the public health and economy adversely. As per the Integrated Disease Surveillance Project (IDSP), during the period 2008‐2010 2342 outbreaks/epidemics were reported in India and these were due to water‐borne diseases, vector‐borne diseases and vaccine preventable diseases. In the past, two epidemics, viz., plague in Surat during 1994 and dengue in Delhi during 1996 inflicted the Indian population very badly at Surat and Delhi, respectively. However, these occurred by themselves and were not the result of any other natural disaster. In the year 2001, dengue again seemed to appear in Delhi and a few cases were reported in October. Timely campaign against breeding of mosquitoes by public education and public health measures ensured that the disease did not attain epidemic status. Epidemic Management Measures:Epidemic management activities include taking appropriate control measures, such as treating those who are ill to reduce the reservoir of infection and providing health education to limit the transmission of the disease to others. Health professionals at higher levels will require peoples help in putting into taking any measures needed to control the spread of the disease, such as giving drugs to people in the community and providing health education. The community may be involved in the management of an epidemic once it is confirmed by the health authorities. The type of control measures for implementation will depend on the type of infectious agent, how the disease is transmitted, and any other factors contributing to the disease. Generally control measures should target the infectious agent, the source of any infection, and the treatment of those who became ill. Remember, the source of infection could be humans or animals, or non‐living things in the environment. 2.5.9.1 Preventive measures: (i) Availability of good quality data to frame better policies and to make better decisions and the monitoring implementation of health care programme and quality of medical research. (ii) Availability of digitized data in unified format to help improving data quality and developing standards for knowledge generation. (iii) Efficiently handling health aspects of disaster by using data for quickly finding information about available resources around disaster site and mobilizing these resources. (iv) Enhancing research to policy through collaborations and exchange of information between researchers and health professionals; between researchers and other stake holders involved in policy making. (v) Enhancing public private partnership in health and preparing national information system of research funding by different funding agencies. (vi) For developing and implementing a comprehensive plan for utilization of knowledge network for health service delivery, medical education and research, an Appropriate Authority under the Department of Health Research in the Ministry of Health and Family Welfare, Govt. of India is to be setup. Such 57
(vii)
(viii) (ix) (x) (xi) (xii) (xiii) (xiv) (xv)
(xvi) (xvii) (xviii) (xix)
(xx) (xxi)
58
an authority with committed resources will be responsible for strategic planning, for implementation and review of the progress from time to time. This Authority/Cell may establish units in the States for action at the local level. To provide correct information and knowledge to end‐users which include health professionals, research, patient and students and dissemination of quality information and knowledge through agencies like DAVP and appropriate media such as internet, information kiosks etc. Public needs to be educated about the signs and symptoms of likely diseases so as to enable the early detection and preventive measures of such disease. Local health authorities need to keep a constant vigil on the epidemic prone areas. A check on the spread of epidemics by means of adequate control and monitoring measures before and after the occurrence of epidemics has to be ensured. Extensive training programme to update their knowledge and skills in this area is essential for health workers. To prepare a National Health and Emergency Management System to respond to major epidemic diseases. To identify, notify, verify, assess and respond to major epidemics. To improve capacity at regional, sub‐regional and country levels to support the detection, assessment, confirmation and response to major epidemics. To strengthen technical and operational support for epidemic diseases control during humanitarian emergencies caused by conflict or natural disasters. To create an effective mosquito control program. Steps required to be taken to avoid uncontrolled urbanization, excessive population growth and urban decay characterized by substandard housing an inadequate water and water disposal system to control water borne epidemics. House to house survey for detection of vector breeding sources, intensification of anti‐larval operation/health education activities and focal spray with pyrethrum extract. To prepare an effective management plans for each epidemic that goes beyond generic World Health Organization recommendations and also specific operational plans to respond to different phases of an epidemic. To have a detailed vaccination strategies, logistics for drug provisions, or continuity plans for essential public services during epidemic outbreaks. To prepare an effective prevention and mitigation strategies at the national level anticipating the magnitude of the impact of an epidemic, link surveillance and response measures, and provide operational procedures that involved a broad range of sectors in preparing for and responding to disease outbreaks. To prepare guidelines for long term capacity development. Businesses should have a continuity plan as well as special contingency plans in the case of a pandemic outbreak. The business continuity plan should identify necessary resources to continue business in the event of a disease outbreak, in terms of personnel, information, equipment, financial allocations, legal counsel, infrastructure protection, and accommodations. Once a continuity plan is done, it should be continually tested and reworked to adapt to various levels of risk so it can ensure that business continues through all
phases of the emergency. Businesses in sectors that are essential to the normal functioning of society, including defence, law and order, finance, transport, telecom, energy, food, water, and health, need to ensure that disruptions to their daily operations are minimal. (xxii) Epidemiological intelligence, Bio‐safety and Bio‐security, Hospital Safety including infection control and pharmaceutical& non‐pharmaceutical intervention,structural and non‐structural mitigation for health facilities (xxiii) In addition, governments and businesses need to cooperate more closely on long‐term pandemic disease control. Some key measures could be to support regional and national pandemic preparedness planning, expand the role of pharmaceutical companies in Government preparedness and manufacturing of own vaccines that are best suited to national priorities and needs. 2.5.10 Forest Fire Nearly 55% of the total forest cover in India is prone to fires every year. An estimated annual economic loss of Rs.440 crores is reported on account of forest fires over the country. Forest fires in India have environmental significance in terms of tropical biomass burning, which produces large amounts of trace gases, aerosol particles, and play a pivotal role in tropospheric chemistry and climate. Forests fires pose a threat not only to the forest wealth but also to the entire regime to fauna and flora seriously disturbing the bio‐diversity and the ecology and environment of a region. During summer, when there is no rain for months, the forests become littered with dry senescent leaves and twinges, which could burst into flames ignited by the slightest spark. Forest fires are caused by natural causes as well as manmade causes. Many forest fires start from natural causes such as lightning which set trees on fire. However, rain extinguishes such fires without causing much damage. Massive forest fire can be caused when a source of fire like naked flame, cigarette or bidi, electric spark or any source of ignition comes into contact with inflammable material. Tropical Dry Deciduous, Tropical Moist Deciduous, Tropical Wet Evergreen Forests are the most vulnerable forests types of forest fire. Subtropical pine forests is the fifth dominating forest type vulnerable to forest fire. The youngest mountain ranges of Himalayas are the most vulnerable stretches of the world susceptible to forest fires. The forests of Western Himalayas are more frequently vulnerable to forest fires as compared to those in Eastern Himalayas. This is because forests of Eastern Himalayas grow in high rain density. With large scale expansion of chirr (Pine) forests in many areas of the Himalayas the frequency and intensity of forest fires has increased. Fire incidents are particularly frequent in NE States where jhum or slash and burn cultivation is prevalent, the pine forests of Uttarakhand and Himachal Pradesh and forests of Central India. Forest Survey of India, Dehradun (FSI) has analyzed the satellite data of forest fires occurring over past years and found that the period between January and May is the most important period for occurrence of forest fire. A grid‐wise analysis of the forest fire vulnerability study carried out by FSI indicates that a total of 15.06% of the country’s forest cover is vulnerable to fires. Fire prevention, detection and suppression activities are state subjects. The central 59
governments has been formulating policy, planning and financing the states from time to time. Forest Protection Division of Ministry of Forest headed by DIG of Forests is responsible for forest fire management at central level. The Joint Forest Management Committees, 36,165 in numbers across the country, have been given the responsibility to protect the forest from fire. The central government has issued the National Fire, Prevention Control guidelines and has also worked on a National Master Plan on Forest Fire Control. A centrally sponsored scheme ‘Intensification of Fire Management’ initiated since the tenth five year plan has allocated 15 percent of funds for fire management. 2.5.10.1 Mitigation Measures Forest fires are as old as the forests themselves. Protecting forest from fire is an important component of forest management. A systematic effort for forest fire disaster mitigation is required to make forest fire control and management more systematic so that the losses to environment and people are minimized. Structural measures will include all those activities for creation of infrastructure facilities for forest fire control. This will include construction and maintenance of roads for better accessibility, construction of fire watch towers, establishment of efficient and reliable wireless/tele communication systems, vehicles, tankers, fire engines, fire fighting equipments, establishment of forest camps, creation of water storage structures, creation of firebreaks in the shape of small clearings of ditches in the forests etc. Nonstructural measures Non‐structural measures will include institutional strengthening, building an effective forecasting and early warning system, creation of forest fire disaster vulnerability indices of forest and communities, capacity building of all relevant stakeholders, better enforcement of forest laws, controlling forest crimes and illegal extractions from forest areas etc. Some of the interventions necessary for forest fire risk mitigation are as follows: 1. Strengthening of institutional framework at Central and State levels to carry out the disaster mitigation and response plan. 2. Identifying various communities at risk due to forest fire disasters. 3. Identifying their vulnerabilities in the context of such disasters. Identification of strength and weaknesses in terms of manpower and other resources at the community level. 4. Developing best practices for community response to forest fire disasters. This can be aided by creation of awareness among the stakeholders. 5. Building local community emergency response through training and capacity building including response for early warning and in fire repression. Strengthening involvement of Joint Forest Management Committees in forest fire disaster management. 6. Sharing information with the communities especially before, during and after disaster has struck. 60
7. Integration of mitigation response of communities from forest fires with mitigation response for other disasters. 8. To keep the source of fire or source of ignition separated from combustible and inflammable material. 9. To keep the source of fire under watch and control. The volunteer teams of local communities may be created not only for fire‐ fighting but also to keep watch on the start of forest and sound an alert. 10. To not allow combustible or inflammable material to pile up unnecessarily and to stock the same as per procedure recommended for safe storage of such combustible or inflammable material. 11. To adopt safe practices in areas near forests viz. Factories, coalmines, oil stores, chemical plants and even in household kitchens. 12. To arrange fire fighting drills frequently. 13. To use Satellite remote sensing with its synoptic and temporal coverage to augment ground operations in terms of fire detection, damage assessment and mitigation planning in a time and cost effective way. 14. Institutional capacity Building: There is general deficiency in authentic data of occurrence of forest fire and damage caused due to it. There is need to have a world class forest fire vulnerability index and danger rating of the forest areas in the country. These indices and ratings have to be prepared at disaggregate level so that is useful for the field managers at the level of forest divisions and below. There is also need for scientific study on damage caused by forest fire from different perspective including damage to forests ecosystems, livelihoods and climate change. Highly vulnerable and inaccessible forest areas also need to be identified so that mechanized intervention even if at a high cost can be justified in case of forest fire in these areas. 15. Capacity building of Human Resources: Traditional forest fire fighting methods are manpower intensive and have been found to be most effective from the country’s perspective. However better training, planning and strategy development can increase the efficiency for such operations many folds. Such capacity building programs for State Forest Departments, other organizations and communities can be implemented through training institutions under both Centre and States. 16. Near Real Time Forest Fire Alert System: Forest Survey is monitoring forest fires on a near real time basis using MODIS sensor since 2004. The signals from MODIS sensor (camera) which is on‐board Terra and Aqua satellites are received on four times every day basis for the entire country. The fire season usually starts in India from February and ends till the end of June. From year 2012, Forest Survey of India has entered into collaboration with NRSC, ISRO, Hyderabad on the program of Real Time Monitoring of Forest Fires. The MODIS signals are now downloaded by NRSC using earth stations as a ‘Direct Read Out’ and disseminated to FSI for further processing. As such the processing time, right from the point of satellite pass over the country to the time signals are disseminated to State Forest Departments, has been curtailed to less than 2 hours. The signals besides carrying the positional coordinates also carry other information qualifying the fire point. 17. Fire Risk Hazard Zonation:Based on the data collected on the fire incidences recorded by the MODIS sensors over the period from 2004 to 2011, FSI has prepared a report on the vulnerability of forests of India to fire. The report has identified the 61
districts and grids based on Survey of India toposheets. The aim of the report is to identify the vulnerable areas of forests in India so that necessary planning and resources can be placed in time to counter and mitigate any possible forest fire disaster. However, this work has been done at a relatively gross scale. It is important that fire hazard zonation is done at least up to sub‐district levels, ideally upto the forest beat or section level thus providing the District Forest Officer precise information about the forest fire risk in his jurisdiction. The hazard zonation has to be continuously monitored together with the biotic pressure and weather data to prepare a dynamic forest fire hazard map which then becomes a vital input for preparedness and mitigation of forest fire disaster management. 18. Central Crisis Group has been constituted in the Ministry of Environment whose chairman is Secretary, Environment and Forests. The CCG will function in the MoEF, GoI, for management of forest fires. The CCG will also be entrusted with the task of continuously monitoring the disaster situation and to suggest measures for prevention of recurrence of such accidents. Similarly, Crisis Groups will be formed at the State, District and Local level. 2.5.11 Railway Accidents The core values of the Indian Railways (IR) include safety apart from security, punctuality and reliability. The constant endeavour of the Indian Railways is to become the leader in the nation's transportation sector by providing safe transport services to the nation. The goals to be achieved to enhance safety on Indian Railways are: To make railways more reliable and a safer mode for transportation of men and material To stimulate the implementation of modern, proactive and systematic safety measures To bring about both qualitative and quantitative improvements in safety performance To encourage safety research and development To reduce consequential train accidents To develop techniques, models and expertise for risk assessment and Mitigation methods. 2.5.11.1 Need for Safety Culture : Safety is an ethos that should pervade all activities of railway operations and maintenance. This ethos has to be instilled and nurtured. There is need to develop techniques, models and expertise for Risk Assessment and mitigation method. Responsibility for ensuring safety is entirely of different departments and their accountability in this regard cannot be diluted. The safety organisation has essentially to be a coordinating service department helping the concerned departments to discharge their safety functions effectively. 2.5.11.2 Safety Policy Issues : There are many areas requiring decisions and directives for long‐term policies for the prevention and Mitigation of Railway Accident. They primarily relate to maintenance of assets, quality of material related to safety 62
components, train operations and industrial relations etc. Some of them are enumerated below: 2.5.11.2.1 Management of Assets (a) Track (i) Composite fastenings system for track (ii) Safety warning devices for gangs/worksites. (iii) Formulation of comprehensive scheme for mechanised maintenance of track (iv) Policy of lubrication on curves and points and crossings. (v) Adoption of long‐term policy for rail grindings (vi) Procurement of longer rails from steel plants (vii) Planning of portable flash butt welding plant/machinery (viii) Anti‐sabotage measures for protection of track (ix) Safety tolerance for track with clear‐cut definitions of safety range and unsafe values at which traffic must be stopped. Note: Ministry of Home Affairs in terms of letter No.27/1/72‐Poll II dated 11.2.1972 clearly states that the agency primarily responsible for providing protection to tracks and bridges is the State Government/Union Territory concerned. (b) Rolling Stock (i). Zero defects and `zero missing safety fittings' and special attention to several components which may not be defined as safety fitting but are critical to reliability of the rolling stock at the time of turning out locos from base sheds and sample check and certification by officers (ii). Adherence to `zero missing safety fittings' at the time of turning out of coaches and wagons from workshops and sick lines (iii). 100% brake power on air brake trains at originating points and 90% at any intermediate points for close circuit rakes (iv). Review of pattern of examination (v). Extending the concept of close circuit rakes to more and more wagon fleet (vi). Phasing out of four‐wheeler tank wagons and other vacuum brake stock (vii). Adoption of distributed power system (Locotrol) which shall enable reversing of the rake from the platform without going through the elaborate movements of engine escape and associated shunting overheads, thus increasing the effective yard capacity (viii). Discharge‐less/green toilets in the coaches. (c) Signalling & Telecommunications (i) Review of existing Maintenance schedules and issue of yardsticks for deployment of skilled manpower to ensure proper upkeep of all signalling gears and to optimize Mean Time To Repair (MTTR) (ii) Timely sanction and execution of works for replacement of signalling installations to maintain the required level of safety and Reliability. (iii) Incorporate the concept of fault tolerance and redundancy in Signal and 63
(iv) (v) (vi) (vii) (viii) (ix)
Telecom gears and equipments design to provide the required level of Mean Time Between Failures (MTBF) and Safety tolerance. Long‐term policy on mandatory provision of proven On ‐Board Train Protection & Warning System and Anti‐Collision Device of approved design. Comprehensive design philosophy & maintenance strategy for signal and telecom equipments to achieve zero failure of track circuit and axle counter equipments. Policy of continuous track circuiting with automatic signalling for Safety enhancement and line capacity generation in mixed traffic scenario. Electronic Interlocking at stations & in sections for Automatic/Intermediate Block/Level crossing signalling. Train actuated warning device (TAWD) All control circuits to be provided with ring protection.
(d) Level Crossings Re‐classification of all existing level crossings, both manned and unmanned, based on density of trains & road vehicles for the purpose of their manning, upgradation and review of sanctioned works. Manning progressively of unmanned level crossings having heavy road/rail traffic. Construction of Road Over Bridge/Under Bridge and limited height sub ways. Elimination closure of unmanned/manned level crossing Provision of lifting barrier in place of leaf gates. Provision of basic infrastructure. (e) Material Procurement (i) Identification of safety components related to :‐ Rail wheel interface Locomotives, coaches and wagons etc. Improvement of speed of trains or visibility of signals i.e. loco headlights, loco flashers, wipers, speed recorders, data recorders, vacuum and air pressure equipment, Alarm Chain Pulling (ACP) equipment in coaches, etc. Fire prevention/protection items in locos, coaches and petroleum (POL) rakes Signal equipment related to train operations viz. tail lamps, hand signal lamps, flashers, safety board indicators and signal indicators etc (ii) Policy of procurement of safety related stores items (iii)Life cycle costing should be codified in the purchase procedure and detailed procedure shall be laid down. (iv) Review of specifications and inspection of material AAC of safety and critical items to be fixed on the basis of maintenance practices prescribed in manuals, RDSO guidelines or by technical heads of departments rather than on the pattern of past consumptions Restrictions of the number of vendors in the RDSO and PU vendor directories to a 64
specified number and to those who have technical capability and proven technology for safety and critical components. The vendor directory of RDSO and PUs should be binding. There should be no freedom for conducting unmonitored trials on safety items. Such trials shall be conducted and monitored by RDSO. Policy for Turnkey works contract for complex software Embedded Electronic Safety Systems, which require close interfacing and compatibility with multifarious functions/systems. 2.5.11.2.2 Train Operations (i) Assessment of line capacity, its constraints vis‐à‐vis new services (ii) Review of maintenance infrastructure & organization to optimize MTTR and ensure safe and reliable operations. (iii) Guidelines on locomotives, coaches, wagons, overdue for maintenance schedules (iv) Phasing out of 4‐wheeler tank wagons or limiting their operation (v) Formulation and issuance of comprehensive policy for dealing with fire incidents in loaded POL rakes (vi) Maintenance and operating disciplines for close circuit rakes (vii) Issues related to loading beyond the identified carrying capacity (viii) Assessing physical and mental stress on driving crews and train passing staff Empowering supervisors to restrict the speed of loco and rolling stock in the interest of safe running of trains Adoption of a strategy of doubling of lines rather than electrification to increase line capacity. Networking of all the diesel sheds, coaching depots and freight maintenance depots for enabling online exchange of data for ensuring safety in operation. Remote monitoring of locos through REMMLOT for their safe running and predictive maintenance 2.5.11.2.3 Role of Technology : The goals of new technologies are to improve safety through reduced human dependence, intervention and improved asset reliability and at the same time reduce costs as the most costly technology may not be necessarily the safest. In this direction, rail‐wheel interaction has to be the thrust area with a view to reduce wear and tear of both rail and rolling stock. Greater association of industries, technologies, R&D institutions and Department of Science & Technology (Ministry of HRD) will have to be ensured in the development of new technology. The increased periodicity or reduced frequency of maintenance will be another priority area. Appropriate technologies will be adopted in phases during the Plan period. I. Track & Bridges Rail flaw detection Rail grinding 65
Track management system Optimisation of schedule of dimensions Improved thermit welding Formation/Rehabilitation Improved fastening Improved high‐speed turnouts Bridge management system Non‐destructive testing techniques like Structural Scan, Ultra Sonics, Acoustic Emission, Strain Gauging and Radar etc. Fatigue life and residual life assessment techniques Stress free temperature/rail stresses of LWR/CWR. Sturdier turnouts by provision of thick web switches and weldable CMS crossings.
II.
Rolling Stock Achievement of zero defect in between two scheduled maintenance of rolling stock Disc brakes with microprocessor controlled wheel slide/slip prevention mechanism On‐board diagnostics Intelligent brake system in locomotives and other rolling stock Censors for detecting dragging equipment, Hot‐boxes. Crash worthiness in coaches. Tight lock CBC couplers with anti‐climbing features. New environmental friendly paint system Bogie mounted brake system Derailment detection devices Driver friendly cabs in locos Guard friendly brake van Disaster Management Fire‐proof coaches Modification in toilet discharge system in coaches to prevent rail corrosion Computer controlled master‐slave multiple loco operation for heavier/longer trains. On‐line monitoring of Rolling Stock through Wheel Impact Load Detectors and Hot axle Detectors Technological upgradation in design/manufacturing/quality control of safety/critical components as per established international standards
III.
Signal & Telecommunication Electronic interlocking for medium and large station yards with seamless changeovers for improving safety and reliability.
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Proven On Board Train Protection System of approved design Train Protection & Warning System (TPWS) and/or Train Collision Avoidance System (TCAS). Train Management System using Commercially Of The Shelf (COTS) available components/sub systems. Highly Reliable Train Detection System using redundancy in design. Mobile Train Radio Communication System 2.5.11.2.4 Information Technology (IT): One of the goals would be to reduce drudgery and to utilise manpower for more innovative and productive purposes. The Indian Railways would like to have much more asset reliability and higher safety through continuous monitoring of state of health of the assets and feedback. For all these, the IR will have to work on IT‐based projects to solve problems and inculcate an IT culture. Few applications of IT, related to safety, would be in following areas :‐ Track and bridge management. Emergency response including accident and disaster management. Wireless connectivity. Train Protection and Warning System. Mapping of rail network and tracking of trains using Global Positioning System (GPS). Computer aided remote controlled signalling and train describer system with display panels. Networking of Freight Maintenance Depots through Freight Maintenance Manager and all Locomotive Sheds through Locomotive Maintenance Manager for ready access to maintenance information all over Indian Railways for ensuring safer running of freight stock and locomotives 2.5.11.2.5 Research and Development (R&D):The aim is to achieve a high quality R&D staff in addition to absorption and assimilation of new technology. The functions of Research, Design and Standards Organisation (RDSO) may undergo a major shift. Railways expenditure on R&D, as a proportion to gross earnings, has been about 0.2% only, which may be suitably stepped up as recommended in many studies. It is proposed to build a scientific cadre in RDSO to provide continuity in R&D efforts and consequently achieve high quality of research and development. At present, RDSO is seized of wheel impact load detector, crashworthy coach design, prevention of rock falls in cuttings, datalogger for Ultra Sonic Flaw Detection (USFD) machines, development of track side bogie monitoring system, development of test‐track facility, development of measuring wheel technology etc. Technology mission on railway safety is being launched in association with IIT/Kanpur and Department of Science & Technology (Ministry of HRD) to tackle some burning issues like wheel flat detection, problem of visibility during foggy weather etc. 2.5.11.2.6 Human Resource Proper Training needs to be imparted for honing the skill of every Railway 67
employee. Development of On Line e‐Learning system and Information System for providing Information on Demand in this vast network of Indian Railways having a continuous changing organization at all levels. 2.5.11.2.7 Target for Reduction of Accidents Ideally, the Indian Railways should provide accident‐free and casualty‐free service and achieve zero level of risk for its passengers. Though it may be possible to achieve the aspired level of safety in near future, the Indian Railways are fully committed to ensure that all its activities are managed to the highest level of safety which is reasonably possible to achieve. Few strategies related to safety, would be in following areas :‐ Collision‐free System Level Crossings: Efforts to contain accidents. Proven On‐Board train Protection System of approved design (Train Protection & Warning system (TPWS and /or Train Collision Avoidance System (TCAS)) . Continuous Track Circuiting with automatic signalling for Safety enhancement and line capacity generation in mixed traffic scenario. Timely renewal of overaged & worn out signal & Telecom assets. Mobile Train Radio Communication Track Renewals Rail/Weld fractures involving improvement in quality of rails, USFD Testing of rails, Improved Thermit Welding, Reduction in thermit welds by mobile flash butt welding, etc. Trespass on Track and sabotage Bridge Management System Provision of microprocessor‐based speed recorders Flasher lights on locomotives High Intensity Twin‐beam Head light for locomotives Microprocessor‐based Electronic Brake System with resetting VCD, Event Recorder Better and safer coaches Use of fire retardant materials Provision of emergency exit To reduce accidents an unmanned level crossing: It is necessary to adopt following measures:‐ Basic infrastructure on all unmanned level crossings will be ensured and it includes provision of adequate width, normal gradient, level surface for 5 m from centre of the nearest track, Whistle Boards, specified Road in good condition and speed breakers/rumble strips. All level crossings, as per revised criteria for manning, falling in the three specified categories, are proposed to be manned in next 5 years. Periodic census of level crossings will be carried out by multi‐disciplinary teams. Compulsory whistling by train drivers by linking loco whistle to the Vigilance 68
Control Device(VCD) On sections where there are a number of unmanned level crossings, at close proximity, RUBs may be constructed at a convenient location and the remaining level crossings closed. Checking visibility levels at all unmanned level crossings, and taking corrective action for their improvement Appropriate approach road gradients within railway boundary to be ensured. Intensive social awareness campaigns to counter misadventure in front of approaching trains. The role of RPF is to detain/prosecute offenders under relevant sections of the Railways Act for obstructing Level Crossing and endangering safety of passengers. Radio based technology fitted in loco to alert road users at unmanned LC gates. Radio device to alert trackmen/gangmen. Manning of unmanned level crossing. Construction of Road Over Bridge/Under Bridge. Elimination closure of unmanned/manned level crossings. Provision of lifting barrier in place of leaf gates. Provision of Basic infrastructures.
2.5.12 Aviation Accidents 2.5.12.1 Introduction: An aircraft crash may result in a very large number of casualties and considerable disruption to both air traffic and essential services. There would also be a considerable risk of fire, and resultant consequences, if the accident takes place either at the airport or in the populated area. The consequences of the crash and the measures needed to deal with it would vary according to the circumstances. The plan dealing with the worst conceivable case of an aircraft crash involves coordination among various government authorities, operator involved and the nearest airport. Section 7 of the Aircraft Act 1934 empowers the Central Government to make rules providing for the investigation of any accident or incident arising out of or in the course of the navigation in or over India of any aircraft, or anywhere of aircraft registered in India. International Civil Aviation Organization (ICAO) imposes an obligation on the States (signatory to the convention) in which the aircraft accident occurs to institute an inquiry into circumstances and conduct the same in accordance with ICAO procedures. Part X and X‐A of the Aircraft Rules 1937 contains Rules for the investigation of the aircraft accidents and serious incidents respectively. DGCA is the Aviation Regulator as far as safety of aircraft operations is concerned. It is involved in the formulation of Rule and Regulations in this regard and oversees the implementation through its oversight and surveillance programme. It is also required to carry out the investigation of the accidents and serious incidents with a sole objective of prevention of such incidents. Though in all other fields, disaster management systems were until recently, reactive and only responded to disasters and provided relief from calamity, but in aviation it was not 69
simply a relief driven disaster management system. It was proactive with emphasis on disaster prevention, mitigation and preparedness. DGCA has recently prepared the State Safety Programme (SSP) based on comprehensive analysis of the DGCA’s safety policies and risk management, safety assurance and promotion. Safety oversight of DGCA is now focused on areas of significant safety concerns or higher safety risks. It now provides the means to combine prescriptive and performance‐ based approaches to safety rulemaking, policy development and oversight by DGCA India. 2.5.12.2Prevention & Mitigation Measures: International Civil Aviation Organization (ICAO) had continuously placed responsibility on Contracting States for safe air operations. The recent one is assimilation of all the safety aspects in a comprehensive programme i. e. State Safety Programme (SSP). The Programme is an integrated set of Regulations and activities aimed at improving safety. Directorate General of Civil Aviation (DGCA) has regulatory responsibility for aviation safety, and has released its SSP document recently. ICAO in its Annexes also require that States should as part of their safety programme, have the service providers/ organizations engaged in commercial operations, maintenance of aircraft, aerodrome operations, provision of air traffic services design organizations, training to implement a safety management system which is acceptable to the State. 2.5.12.3 India Safety Policy: As per the Safety Policy, employing ICAO standards and recommended practices, as minimum, Directorate general of Civil Aviation (DGCA) will ensure the highest level of safety in the India Aviation system. Mindful of India’s State Safety Programme (SSP), DGCA will maintain as integrated set of regulations and activities aimed at enhancing aviation safety. Further, DGCA will implement proactive and as far as possible predictive strategies encouraging all stakeholders/ service providers to understand the benefits of a safety culture, which should be based on an inclusive reporting culture. DGCA will also foster and assist stakeholders in developing comprehensive Safety Management Systems (SMS) and will develop preventive safety strategies for the aviation system in an environment of a “just culture’. DGCA has committed itself to: Develop and embed a safety culture across all aviation industries that recognizes the importance and value of effective aviation safety management and acknowledges at all times that safety is paramount; Support the management of safety in India through an effective safety reporting and communication system; Develop general rulemaking and specific operational policies that build upon safety management principles; Ensure that the DGCA financial and human resources are sufficient for implementation, establishment and maintenance of SSP and that personnel have the proper skills and are trained for discharging their responsibilities, both safety
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related and otherwise. That these personnel are specialists in their functional areas and competent in safety regulation of operators and service providers; Clearly define for all regulatory staff, their responsibilities and accountabilities for the implementation, establishment and maintenance of SSP and its performance; Conduct both performance‐ based and compliance‐ oriented activities, supported by analysis and prioritized resources allocation based on safety risks levels (proactively targeting regulatory attention on known areas of high risk); Ensure that acceptable levels of safety for aviation operations within the State are being set, measured and achieved and expressed in terms of safety performance indicators and safety performance targets; Continually improve the SSP and safety performance; Interact effectively with service providers establish and maintain the Safety Management System (SMS) in their operation; Establish provisions for the protection of safety data, collection and processing systems, so that people are encouraged to provide essential safety‐related information on hazards, and there is a continuous flow and exchange of safety management data between DGCA and service providers; and Promulgate an enforcement policy that ensures that no information derived from any safety data, collection and processing systems, established under the SMS will be used as the basis for enforcement action, except in the case of gross negligence or wilful deviation; and Achieve the highest levels of safety standards and performance in aviation operations.
2.5.12.4 State Safety Programme: The Ministry of Civil Aviation (MOCA) is the nodal Ministry responsible for policy formulation and regulation of civil aviation in India. The Ministry also overlooks the planning and implementation of schemes for the growth and expansion of civil air transport, airport facilities, air traffic services and carriage of passengers and goods by air. The Director General has special powers vested under Section 5A of the Act to issue directions. Section 4A of the Aircraft Act empowers the Director‐General or any other officer specially empowered in this behalf by the Central Government to perform the safety oversight functions in respect of matters specified in the Act or the rules made there under. DGCA has published its SSP document to communicate the SSP for civil aviation in India to all stakeholders. This focuses on roles and responsibilities, as well as actions taken by the Directorate General of Civil Aviation (DGCA), as the responsible organization for the State Safety in civil aviation, India SSP is broad in scope, including many safety activities aimed at fulfilling the programme’s objectives of civil aviation. 2.5.12.5 State Safety Risk Management: Proactive measures intended to identify and mitigate risks prior to their effects are being implemented in the Indian aviation environment. Specifically these include the elements of rulemaking and policy of hazard identification and risk mitigation contained within the CAR or SMS. Aim is to move to a performancebased safety management process in India, with each applicable service provider taking proactive responsibility for the management of safety, with the DGCA providing oversight and regulatory control. 71
DGCA is using the Safety Risk Management process to determine what action shall be taken to help mitigate those risks. The process results in a set of actions provided by the DGCA. Safety improvements cannot be delivered without DGCA continuing engagement with all sectors of aviation industry. 2.5.12.6 Safety requirements for the stake holders SMS : The DGCA has released a series of SMS, CARs setting out operational regulations and implementation policies for the applicable service providers to implement their SMS as part of their certification process. The SMS CAR (Section 1, Series ‘C’ part‐I) issued on 20th July, 2010 lays down the safety‐ related processes, procedures and activities for the establishment of an SMS acceptable to the DGCA, and should be consulted by the applicable service providers as the key reference in understanding the requirements of the DGCA. Specifically, it lays out the following phased approach for the development and acceptance of service providers’ SMS. PHASE 1 1. The name of the accountable executive; (within 120 2. the name of the person responsible for implementing the SMS; days of issue of 3. a statement of commitment to the implementation of SMS (signed by the CAR) accountable executive); 4. documentation of a gap analysis between the organization’s existing system and the SMS regulatory requirements; and 5. the organization’s implementation project plan based on an internal gap analysis. PHASE 2 1. a documented safety management plan; (within 1 year 2. documented policies and procedures relating to the required SMS of issue of components; and CAR) 3. a process for occurrence reporting with the associated supportive elements such as training, a method of collecting, storing and distributing data, and a risk management process A process for the proactive identification of hazards and associated PHASE 3 (within 2 years methods of colleting, storing and distributing data and a risk management of issue of process. CAR) The required components are: 1. documented safety management plan; 2. documented policies and procedures; 3. process for reactive occurrence reporting and training; and 4. Process for proactive identification of hazards is in place. PHASE 4 1. Training (within 3 years 2. quality assurance; and of issue of 3. emergency preparedness CAR)
The DGCA supports the implementation of SMS by running seminars/ workshops for the industry to promote confidence among operational staff in encouraging and assessing SMS development and performance. The cultivation of an active safety culture at all levels and in all functional areas in the aviation industry is seen as a key area of development. The DGCA holds regular meetings with operators and service providers, in order to keep them advised 72
of likely regulatory developments, and develop the required safety culture.
2.5.12.7 Performance Based Safety: This approach is aimed to ensure continuous safety performance improvements in all aspects of aviation in India. It requires a proactive risk control, implemented by the service providers and overseen by the DGCA. 2.5.12.8 State Acceptable Level of Safety (ALoS):The State ALoS represents the State’s expressed target for the level of aviation safety in India. It takes into account the existing level of safety risk and the public expectations in setting realistic and measurable goals for safety risk management. The States ALoS will be established by the DGCD, and is the responsibility of the Director‐General. It will include as a minimum a series of safety indicators and targets focusing on high level outcomes such as accidents and serious incidents. The indicators used and their quantitative target are known as the “safety measurement”. This is going to be implemented in the 3rd phase of SMS implementation. 2.5.12.9 Agreement on Service Providers’ Safety Performance:Once the ALoS is established, this will then be used to drive a top‐down safety performance target setting for all aviation organizations in India. This will be a reference by which the service providers and DGCA can assess the ongoing safety performance, and initiate corrective actions as required. The quantitative targets (applied to safety indicators) will be agreed between the DGCA and the applicable service provider. The targeted safety performance will be scaled as appropriate dependent on the complexity of operations and availability of resource at the applicable service provider. The safety indicators (i. e. parameters that characterize the level of safety in the system) will be developed to be measurable and reviewable on an ongoing basis. Collected data from occurrence reporting and safety maturity surveys will be used to determine quantitative measurement against the indicators. The DGCA will identify key risks from the data to focus corrective actions. With the development of the safety target processes and values, it is expected that lower level safety indicators will be introduced over time. These lower level safety indicators and their quantitative targets will be measurable on an operational level (i. e. they will relate directly to the daily operations of the relevant service provider). 2.5.12.10 DGCA Safety Plan Deliver the Safety Targets:The DGCA Safety Plan will be developed to ensure that the ALoS, as specified by specific safety targets, is delivered in a reasonable timeframe. The Safety Plan takes account of the identified risks, available resource and cost‐ benefit of any change to determine a pragmatic series of actions to be taken by stakeholders in India. The safety Plan will be subject to regular reviews in particular by: (i) continuous hazard identification and proposal of appropriate risk mitigations; (ii) assessment of occurrence data, audits, inspections and safety reporting to update and priorities action upon individual risk areas. 73
2.5.12.11 Safety Oversight: DGCA safety oversight function is a fundamental component of safety assurance in aviation in India. DGCA’s safety oversight has two primary elements: (i) Ensuring compliance with regulations, namely: compliance with national and international standards and regulations; ensuring appropriate qualification and training; ongoing inspections, audit and surveillance; and resolving safety concerns effectively. The structure of the DGCA has been updated to provide effective oversight in all required areas, including a new Airspace and Air Traffic management Directorate. Regional offices have been expanded, and now include Operations, Airworthiness and Air Safety Divisions. Consistent guidance is applied by safety inspectors in the areas of operations, airworthiness and enforcement. Surveillance is reinforced by the presence of a Surveillance Procedures Manual and updated Enforcement Policy and Procedures Manual, together with a new Surveillance and Enforcement Division. This Division will maintain a database of all findings detected, and monitor the same until closure of the observation. Separately a Board for Aviation Safety (BFAS) has been set up to resolve Level I surveillance findings and their monitoring. Level I findings ion the de‐identified from are displayed on the DGCA website to promote safety exchange. The Civil Aviation Safety Advisory Council (CASAC) ensures ongoing best practice in safety oversight including areas for future strengthening. (ii) Efficient oversight of service providers’ SMS, including resource allocation and performance monitoring. The DGCA will ensure that regulatory safety risk controls are appropriately integrated into individual service providers’ SMS. In addition, the practice of the safety risk controls will also be audited, including checking for appropriate resource allocation. The DGCA will also monitor safety measurement for all applicable service providers, with a continuous process of improving the safety indicators and updating safety targets in line with the ALoS. This performance monitoring aims to ensure best practice throughout the India civil aviation industry. Independent audits by the FAA IASA programme confirm that India is to e considered as a “role model” in the Asia region in the civil aviation sector. 2.5.12.12 Safety Data Collection, Analysis and Exchange : As stated in the earlier paragraphs, appropriate systems including the voluntary reporting system exist for reporting of aircraft accident and incidents, bird strikes and air proximity incidents. All stakeholders are required to provide the information of any occurrence. The availability of safety data to the State is a determinant factor in the decision regarding the detail of representation, as well as the selection of quantitative or qualitative safety indicators.
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The DGCA has achieved major progress in the development and initial implementation of an extensive surveillance programme in the conduct of its safety oversight responsibilities. The programme is well supported with associated procedures, guidance material and checklists. The programme has generated sufficient data to enable the conduct of safety driven analysis, identification of major safety concern and associated safety risks in order to set DGCA safety priorities and focus of attention. The surveillance and Enforcement Division is responsible for establishing quantitative statistical type reports and records in respect of all DGCA generated findings and provide monthly reports on Directorates and Regional offices tracking of corrective actions. This type of quantitative statistics provide the DGCA with a full qualitative analysis on the identified safety concerns and associated safety risks in order to assist DGCA in setting program safety priorities. DGCA is developing Comprehensive Safety Information System, (CSIS) to consolidate all the safety information received. The ability (software and hardware) to analysis the data will be improved to identify key safety risks and to develop mitigating action, including targeted inspections, audits and surveillance for individual approved organizations. Data collected regarding specific safety indicators at an operational level, will be used to priorities actions and resources on areas of higher risk. The Accident Incident Reporting System (AIRS) will be further improved and the incident data collected (regarding specific safety indicators at an operational level), will be used to priorities actions and resources in areas of higher risk. The directorates of DGCA will establish mechanisms that guarantee that the identification of hazards and the management of safety risks by service providers follow established regulatory controls and safety risk controls are integrated into the service provider’s SMS. 2.5.12.13 Training: The DGCA would provide training and awareness to support development of a positive organizational culture. The DGCA is establishing at the moment appropriate Training Programme for its staff. DGCA’s annual budget has adequate allocation under training. Both initial and recurrent training is provided to officials/ inspectors. In near future every individual involved in safety management and safety oversight appropriate to each individual’s involvement in the SSP will be appropriately trained and remainder of the employees will undergo short safety briefing courses. 2.5.13 Road Accidents The rapid expansion of road transport has brought with it the challenge of addressing adverse factors such as the increase in road accidents with grater human tragedy. It involves high human suffering and monetary costs in terms of premature deaths, injuries, loss of productivity etc. Most deaths and injuries due to road accidents are invisible to society. They are a hidden epidemic. In India, motor vehicles including two wheelers are growing at a faster rate than the economic and population growth. The problem of road safety is acute in India. In the year 2011 alone, number of road accidents were 4.97 lakh resulting in close to 1.42 lakh deaths and 5.11 lakh injured, many of whom are disabled for rest of their lives. Sadly, many of these victims are economically active young people. 75
2.5.13.1 National Institutions and/ Agencies: The nodal Ministry for Road accident related disasters is the Ministry of Road Transport and Highway along withNational Road Safety Council (NRSC), Fire and Emergency Services, Police and hospitals have important role in management of Road accidents in their respective fields. 2.5.13.2 Mitigation Measures: The following measures shall be adopted to mitigate the risk of road accidents: 2.5.13.2.1 Road Engineering: These are design/specification related aspects of roads and highways to enhance road safety. The National Highway Authority of India (NHAI) is ensuring usage of road safety and has taken a number of steps to enhance safety of road users. The safety measures may be inbuilt in the projects during design, construction, operations and maintenance. 2.5.13.2.2 Enforcement: The state governments and UTs should take strict measures for enforcing the statutory provisions provided under the Motor Vehicles Act, 1988 and the Central Motor Vehicle Rules, 1989. The enforcement measures under the said statute provides for inspection, licensing and verification of fitness of vehicles. Drunken driver, minor driver, driving without seatbelt, driving without hamlet shall be discouraged from the road. 2.5.13.2.3 Education and Training: Measure should take to educate drivers and pedestrian about the road safety awareness and imparting training to drivers. The initiatives may in the field of training are refresher training for heavy vehicle drivers and providing financial assistance to states/UTs for setting up model driving schools to turn out well trained drivers. 2.5.13.2.4 Faster relief and evacuation of road accident victims: In order to reduce the Trauma and probability of death and disability associated with the road accidents, National Highway Accident Relief Service Scheme may initiate, which provides for supply of cranes and ambulances to states/UTs and NGOs for relief, rescue and evacuation of accident victims to the closest medical centre and for clearing the accident site. 2.5.13.2.5 Medical care: Another measure is medical care which may arrange in very short span of time to save the precious time for life of victim. Financial assistance may be provided to the state government hospitals located on national highways for up gradation and strengthening of emergency facilities. 2.5.13.2.6 Road Safety Audit: The specific aim of the road safety audit is to minimize the risk and safety of accidents may initiate on the national/state highways and expressways. 2.5.14 Chemical (Industrial) Disasters Industrial disasters are disasters caused by chemical, mechanical, civil, electrical or other 76
process failures due to accidents, negligence or incompetence, in an industrial plant which may spill over to the areas outside the plant or within causing damage to life, property and environment. Industrial disasters include events that occur due to mishaps or failures in industry or related activities and also the disasters that affect the industrial functions, property and productivity. ‘Chemical disasters’ and ‘Industrial Disasters’ are terms often used interchangeably but are actually a sub‐category of the other, a chemical disaster may occur due to both., natural and human‐induced source, however, in view of growing chemical usage and industrial development worldwide, the pre‐disaster prevention and mitigation of chemical (industrial) disasters is a serious concern. It is estimated that there are currently over 1961 Major Accident Hazards Units in India besides other small and medium‐sized industries, in huge numbers, all across the country. New industries are also coming up at a rapid rate. Chemical disasters are occurrence of emission, fire or explosion involving one or more hazardous chemicals in the course of Industrial activity (handling), storage or transportation or due to natural events leading to serious effects inside or outside the installation likely to cause loss of life and property including adverse effects on the environment. “Chemical” accident or emergency can result in extensive damage to the environment with considerable human and economic costs. Chemical and industrial emergencies may arise in a number of ways such as: Explosion in a plant Accidents in storage facilities of chemicals Accidents during transportation Improper waste management Accidents in treatment plants Technological system failures of plant safety design Arson and sabotage Human error 2.5.14.1 Mitigation Plan Chemical and industrial accidents generally occur due to technical failures that can be anticipated. The risk associated with them can thus be predicted and reduced effectively by identification of risk areas, risk assessment and designing pre‐operative measures. The occurrence of chemical accidents and probability thereof, manifesting in a disaster, remain a cause of concern. The management of chemical disasters aims at prevention and mitigation with the introduction of safer process technologies, improved performance of safety devices and reduction of human error. Immediate effects of a disaster can be mitigated through installing engineering systems like scrubbers, flares and venting systems. The Ministry of Environment of Forests is the nodal ministry for preparing the Mitigation Plan for Industrial & Chemical Disasters. NDMA has come out with guidelines for the same. As per the NDMA guidelines the key mitigation measures those need to be included in National Mitigation Action Plan are as follows: (i) Putting in place a national mechanism for covering all major disasters and 77
(ii) (iii) (iv) (v)
(vi) (vii) (viii) (ix) (x) (xi) (xii)
(xiii)
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reporting mechanisms at the state, district and local level. Monitoring of the compliance of MSIHC rules 1989 and EPPR Rules 1996. On site and Off site plans at Industry level, cluster level and also district level to be prepared and updated regularly. Plans to be tested during the mock drills. Dovetailing regulations governing HAZCHEM safety with the Disaster Management Act, 2005 (DM Act, 2005) – Integrated offsite and DM Plans. Strengthening of the institutional framework for CDM and its integration with the activities of the NDMA, State Disaster Management Authorities (SDMAs), District Disaster Management Authorities (DDMAs) and other stakeholders. Establishing a risk management framework criterion for chemical assessment. Safe Design of the installation: Renewed focus on model safety codes/ standards for prevention of accidents at industry level by matching processes and technologies for safety installations comparable with the best available in the world. Mechanisms to be put in place for assuring Process Safety and regular maintenance although industry is responsible for the same. Implementing a financial strategy for the allocation of funds for different national and state/district level projects for disaster mitigation. Establishing an efficient information network for dissemination of alerts, warning and response messages. Identifying/recognising training institutions. Developing highway DM plans for all the identified stretches, nodal points, and Standard Operating Procedures (SOPs) integrated in the driver’s kit. Establishing a register of relevant national and international institutes and information exchange programmes. Inventory of all Hazardous Chemicals: About 1949 MAH industries are distributed in various states across the country. These industries are using inflammable, explosive and toxic chemicals. The information about chemicals with antidotes and preparedness can reduce the risk. Therefore, each State and UT should prepare a data bank of all MAH industries, in first phase, for hazardous chemicals as per the MSDS sheet of Schedule 9 of MS&IHC rules. Besides, the inventorisation will have to carry out to know the hazardous chemicals in the following places:‐ a. Indian Ports:‐ with the help of DGFASLI; b. Industrial Estates: with the help of SPCBs, CPCB, CIFs and PESO; c. Roads: with the help of RTO, PESO and PNGRB; d. Petroleum and Gas Industries: with the help of PNGRB. Risk and Vulnerability Mapping: After doing inventorisation of hazardous chemicals zonation and mapping of vulnerability due to release of chemical into the atmosphere is important. The behaviour of the released chemical depends on the chemical and physical property of the chemical, climatic conditions and ground topography. The various vulnerable limits for heat, over pressure and toxic concentration, as defined in standard (IS: 15656: 2006), should be used in various types of the incidence of fire explosion and toxic release. These all limits should be overlay on the map of the industry layout/ industrial estate layout to project the impact zones. These impact zones for emergency planning are of great concern for both on‐site and off‐site issues.
(xiv) (xv) (xvi) (xvii) (xviii) (xix) (xx)
Establishing post‐disaster documentation procedures, epidemiological surveys and minimum criteria for relief and rehabilitation. Sensitising the community on chemical disasters. Sensitising all stakeholders, especially the management of Major Accident Hazard (MAH) units for a more proactive role in prevention of chemical disasters. Strengthening the National Disaster Response Force (NDRF), fire services, medical first responders and other emergency responders. Revamping of home guards and civil defence for CDM. Developing a national medical emergency plan binding all government, private and public hospitals with unified, well established triage and other emergency procedures. Poison Centres to be established. During the year 2000‐01 (last updation was done in April 2006), an oil Industry contingency Plan (OICP) was formulated with the objective interalia, to maintain uninterrupted supplies of petroleum products all over the country and specifically to the priority sectors during crisis situations arising out of disturbances with oil sector, due to external factors such as strikes, bandhs, law & order problems, natural calamities, etc.The above tasks was made possible by Industry Sub‐groups which are Refinery (Incl. Pipelines), Supply and Distribution, Marketing (Incl. Aviation & LPG) and Human Resources under the convenorship of Director, BPCL. OICP includes preparedness on action pointsidentified by the various groups in order to tackle emergency crisis situation like effectively by Refinery/Port Coordinators, Regional level Coordinator/State level Coordinator and at the field level by the respective coordinators.
2.5.15 Nuclear & Radiological Emergencies The preparation of this document necessitated that all probable nuclear / radiological emergency scenarios be considered to ensure that aspects related to each of them are addressed. Generally, a nuclear or radiological emergency is described as a situation, which has potential to lead to, or a situation, which has actually led to either operating personnel or any member of the public being exposed to radiation in excess of the prescribed regulatory limits. While the end consequences are the same, the term nuclear or radiological essentially applies to the source or cause, which resulted in the release of radiation. Generally, if it is due to incidents at facilities like nuclear power plants, research reactors, etc, it is termed a “nuclear emergency” and it occurs in the context of usage of radioactive sources, it is termed as “radiological emergency”. Indian Atomic Energy Programme: India is one of the several countries in the world, which has a major programme for using nuclear energy for the generation of electricity and for the application of radioisotopes in industry, medicine and agriculture for improving the quality of life of its people. Due to the inculcation of a safety culture and effective regulation by the national regulatory authority, the Atomic Energy Regulatory Board (AERB), the radiation dose to occupational worker is normally kept well within the permissible limits and the risk of any adverse impact of radiation in the public domain is extremely low. 79
However, it is also necessary to address extremely unlikely scenarios of instances arising out of the failure of safety systems and / or violation of prescribed safety procedures, resulting in the operating personnel being exposed to radiation doses significantly in excess of the stipulated limits. Such instances on occasion could also have the remote possibility of resulting in an off‐site emergency situation leading to a release of radiation to the environment or in radiation exposure to the public in excess of the regulatory limits. In the prevailing security scenario, fears of such events also get surfaced due to malevolent acts of terrorist or antisocial elements. Details of the composition of the Committee Task Force for drafting the national level mitigation plan with respect to nuclear and radiological emergencies were made available to its Convener in December 2008 and NDMA issued the “National Guidelines for the management of Nuclear and Radiological Emergencies” in February 2009. The prevention and mitigation measures as per the NDMA guidelines are broadly as follows :‐ (i) Compliance with Regulatory requirements. (ii) Nuclear emergency preparedness. (iii) Capacity development. (iv) Strengthening the framework of Nuclear Emergency Management through legal and regulatory measures. 2.5.15.1 Mitigation Plan incorporated in the design philosophy for major nuclear facilities like Nuclear Power Plants 2.5.15.1.1 Adoption of stringent safety criteria: Well‐established safety criteria are used during sitting, designing, construction, commissioning, operations and decommissioning of nuclear power plants. (i) Sitting: A nuclear power plant / site is selected through a detailed study to ensure the requirements laid down by the AERB in such a manner that its operation has no adverse impact on the environment. (ii) Design and Construction: It is ensured that the technologies incorporated are state‐of‐art and proven design and the man‐machine interface are viewed in all stages of designing. (iii) Commissioning: The commissioning programme confirms that the installation, as constructed, is consistent with the design and the safety requirements. Operating procedures are validated to meet design aspects as part of the commissioning programme. (iv) Operation: Plant is always operated within the safe boundaries as identified in Tech Specs viz. inspection, testing by trained and authorized personnel in accordance with the approved procedures. (v) ALARA Principle: During all the stages of the life of a nuclear plant, starting from design to decommissioning, radiation exposure to both the occupational workers as well as members of the public are kept As Low As Reasonably Achievable (ALARA) (vi) Safety Culture: The management assigns the highest priority to safety standards and ensures that safety policies are implemented with a clear division of responsibility and a well defined protocol of communication as a 80
part of safety culture. (vii) Decommissioning: The decommissioning aspect is to be taken into account in such a manner that the radioactive waste generated during decommissioning are handled with care. It must be ensured that (i) it does not add to excessive exposure of the plants personnel and members of the public after decommissioning is completed and (ii) even after a long period of time, it does not get into the local environment or get mixed up with the water table. 2.5.15.1.2 Engineered Safety Features:Engineered safety features are provided in India’s nuclear power plants for mitigating the consequences of an accident; such as: (i) Emergency core cooling system (ECCS) for injecting high pressure coolant into primary heat transport system in the event of loss coolant accident. (ii) Vapour Suppression System to limit the peak pressure of containment during a loss of coolant accident condition. (iii) Liquid Poison Injection System for ensuring long term sub‐criticality of reactors. (iv) Reactor Building Coolers to bring down the primary containment pressure during an accident condition. (v) Provision of complete double containment for each reactor. (vi) Secondary Containment Recirculation System to reduce activity release, using multi‐pass filtering by recirculation. However, such systems are evolutionary in nature and future nuclear power plants are likely to induct the upgraded version of these systems or entirely new ones. 2.5.15.1.3 Accident Prevention: The inherent safety philosophy in design features, adoption of best available manufacturing/fabrication procedures, best operating practices and stringent regulatory measures are practiced to ensure prevention of accidents in nuclear power plants. The design philosophy of defence‐in‐depth, where several levels of protection and multiple barriers are provided to prevent the release of radioactive materials, and to ensure that series of failures or combinations of failures that might lead to radiological consequences are of very low probability. Defence‐in‐depth is structured in five levels. Should one level fail, the subsequent level comes into play automatically to retain the safety status. To ensure a very high level of reactor safety the present generations of nuclear reactors in India are designed, as followed worldwide, based on technical features that ensure the following: (i) Reliability: To achieve a high level of reliability of safety‐related systems by implementing the principles of diversity, redundancy and independence. (ii) Adoption of FailSafe Design: to ensure that the plant comes to a safe shutdown state in the event of any failure of safety related components. (iii) Resistance to Natural Disasters: Structures, systems and components necessary to assure capability for shutdown, decay heat removal and confinement of radioactive material are designed to remain functional 81
(iv)
(v)
throughout the plant’s life, even in the event of natural disasters like earthquakes, cyclones, floods, etc. Seismic Qualification: The plant is designed for Operating Basis Earthquake (OBE), which is the maximum ground motion that can be reasonably expected to be experienced at the site area once, with an estimated return period of about 100. The design also considers another higher level of earthquake called Safe Shutdown Earthquake (SSE), which is the maximum level of ground motion expected to occur once in 10,000 years Safety Analysis: Safety analysis is carried out for postulated initiating events as per the standard design codes and guidesof the AERB to demonstrate the safety of the plant and the environment under the design basis accident.
2.5.15.2 Mitigation Plan for criticality accidents in nuclear fuel cycle facilities 2.15.2.1 Prevention:‘Criticality’ control is a risk management issue unique to nuclear fuel cycle facilities and other activities involving high grade fissile materials. It calls for a detailed safety analysis of the system and incorporation of various technical and administrative measures to prevent ‘criticality’ situation under all possible scenarios. To prevent ‘criticality’ accidents in fuel cycle facilities, licensees must ensure that accidental ‘criticality’ is prevented through proper design, quality assurance programme and safety analysis considering parameters which affect ‘criticality’, viz., mass, density, geometry, interaction, moderator, poison, reflector, etc. 2.5.15.2.2 Preparedness:In case of a ‘criticality’ accident at a nuclear fuel cycle facility, the rate of release of radiation is very high and takes place in a time period as short as a millisecond which may continue to last over a much longer period, if not controlled immediately. The very high radiation field produced during ‘criticality accident’ makes a normal radiation detection system (e.g., gamma or neutron area monitors) ineffective. Therefore ‘criticality monitors’ are to be installed at appropriate locations in the concerned nuclear facilities to sense the release of bursts of neutrons and gamma rays from the ‘criticality’ reactions As with radiological safety, assessment through the technique of hazard analysis is one method of identifying potential ‘criticality’ hazards. For ‘criticality’ control, however, it is assessor training which provides the most important input to fault identification due to the fact that the assessor needs to be aware of all the factors, which have the potential to result in an inadvertent ‘criticality’. 2.5.15.3 Mitigation Plan for Facilities using radioactive sources: The registrant has the primary responsibility for the safe use and control of radioactive materials/radioisotopes. Every industry using radioactive materials/radioisotopes will have an inventory control procedure for all radioactive sources and access control to prevent the exposure to such radiation sources/nuclear materials. Radiological accidents could take place at locations where radiation or radioactive sources are used, e.g., in industry, medicine, agriculture and research. Accidents could also take place during the transportation of radioactive materials. 82
The regulatory guidelines require that all the applications of radioactive materials/radioisotopes conform to the specified safety standards. These, in turn, are covered by the design, fabrication, testing and operation of various equipment as well as standard operating procedures to ensure safety. This also involves strict administrative control and security of the radioactive sources. 2.5.15.4 Mitigation Plan for radiological emergencies in the public domain due to incidents / accidents involving transportation of radioactive materials 2.5.15.4.1 Potential emergency scenarios: Following are some of the potential emergency scenarios involving transport of radioactive consignments. fall of a heavy package into a river head on collisions between a vehicle and one carrying a radioactive consignment. pilferage at the cargo office mishandling of package, packages run over by fork lifts consignment getting involved in a fire accident The standards of safety practiced for the transport of radioactive materials in India are such that radioactive consignments duly prepared as per the regulatory requirements can be handed over to the carrier. These packages after moving through the various streams of transport emerge at the intended destination in a safe condition. 2.5.15.4.2 Mitigation through Prevention: Radioactive materials are transported in accordance with the Safety Code issued by AERB on the subject. This Safety Code conforms to the Regulations for the Transport of Radioactive Material of the International Atomic Energy Agency (IAEA). For the transportation of radioactive materials, there are AERB guidelines, which specify the design of the container, as well as the manner in which they should be handled and transported. The containers used for the transportation of high level radioactive materials like nuclear spent fuel, are designed to withstand severe shock, fire, drop from a height, etc. These containers are certified by actual tests carried out with scaled‐down model. Additionally, restrictions are imposed on the speed of transport vehicle along with physical protection by security forces to take care of any threat from misguided elements. 2.5.15.4.3 Mitigation through Preparedness: The consignor and consignee must strictly adhere to the requirements / guidelines for the security of sources during handling and transportation as given in AERB guides. All radiation facilities using radioactive materials are required to prepare emergency response plans for the envisaged scenarios resulting in contamination, external exposure and loss of source. 83
Any unusual event relating to the loss of source or excessive exposure to a person or contamination will be informed to AERB and CMG, and the nearest ERC. The user industry / facility, along with experts / professionals from DAE units / AERB, will promptly provide expert services in radiation protection to assist the local officials and first responders in mitigating an emergency from a radioactive source or for searching and sealing of the lost source. 2.5.15.5 Mitigation Plan for Emergencies arising out of malevolent use of radioactive materials RDDs or “Dirty Bombs” 2.5.15.5.1 Effects of a RDD: A dirty bomb is a dispersal device that uses a conventional explosive material to attempt to spread a source of radioactive material in the environment. It is extremely unlikely that a radiological terrorist dispersal event (i.e., exclusive of detonation of a nuclear weapon) can disperse sufficient radioactive material for the resulting air and ground contamination to pose an immediate health hazard to people near the event or to first responders. In such instances, Lifesaving actions and actions to secure the area of a radiological terrorist event from further terrorist activities will be given precedence over radiological considerations following a radiological terrorist event. 2.5.15.5.2 Mitigation though Prevention: The best available physical protection systems using state‐of‐the art surveillance and monitoring systems are provided at all nuclear / radiological facilities. Similarly, by implementing appropriate safety and security measures, strict accounting procedures and quick detection /identification devices, the State/ National authorities strengthen the prevention of (i) illicit trafficking of radioactive sources and Special Nuclear Materials (SNMs) and (ii) their falling into the hands of unlawful elements and /or terrorists. These measures will also prevent a radioactive source from being lost, stolen or abandoned. The first step to counter RDD is to ensure security for all radioactive sources in the country. In this regard, regulatory requirements regarding the security and safety of radioactive sources should be enforced across the country. This will be backed by measures to prevent the smuggling or illicit trafficking of radioactive materials, especially fissile materials. The controlling of such activities calls for setting up a comprehensive national/international security system, auditing and detecting and monitoring methodology for such materials protection. Control and accounting should have coverage of vigilance and intelligence. Highly sensitive detectors/dirty bomb detectors capable of detecting the smuggling of radioactive sources or explosives are to be installed by MHA at all entry and exit gates of the various possible routes (airports, sea ports, border crossing areas, etc.) to prevent radiological terrorism. On detection of radioactive materials, these detector systems will generate an alarm on real time basis. All nuclear facilities will also have monitoring systems installed at the entry and exit gates of radioactive materials. Police patrolling vehicles provided with portable radiation monitors are required to detect the presence of unauthorized sources in the public domain. 2.5.15.5.3 Mitigation though Preparedness : In a RDD, the radioactive material is 84
either placed inside or mixed with a highly explosive device which, on detonation, vaporizes and spreads the radioactive material, leading contamination of the surrounding area. The spreading of this airborne radioactivity and its radiological impact depends on the size, nature and quantity of radioactive material used and the dispersal of the released material. To cope with such an emergency, the tasks to beundertaken by State Disaster Management Authorities (SDMA), State Executive Committee (SEC) and District Disaster Management Authorities (DDMA), in consultation DAE, DRDO and AERB and with assistance from MHA, involve, inter alia, preparedness in the following main areas, viz., The affected persons and area will have to be monitored for contamination levels. The first responders have to be suitably equipped to measure the radiation levels and have the necessary kit to protect them. There will also be a need to monitor a large number of persons after an RDD explosion and handle large amounts of radioactive wastes arising out of change of clothing, showering or washing. i) A list of the agencies to be contacted by the public in case of a suspected presence of radioactivity is to be made available. ii) Expertise has to be developed for remotely defusing unexploded RDDs and other methods of reducing exposure if the experts need to be planned and worked out. 2.5.15.6 Other Mitigation measures to prevent radiation emergencies in public domain 2.5.15.6.1 Strengthening radiation monitoring and detection systems in the Public domain: It is desirable to have a mechanism to continuously monitor background radiation levels in the public domain. State Disaster Management Authority (SDMAs) with assistance from MHA and in consultation with DAE will help in detecting and locating orphan sources. Such a mechanism will be implemented in all major cities that are hubs of important business activities or other important installations which could be potential targets for such threats. In this context, it may be noted that BARC and DRDO have developed a vehicle monitoring system that can check any inadvertent movement of any radioactive source or material in a moving vehicle. 2.5.15.6.2 Strengthening Border Controls: In order to detect unauthorized/illicit trafficking, sensitive portal radiation monitors and other radiation detection devices needs to be installed under the control of Ministry of Home Affair in consultation with the DAE and AERB at border entry points, sea ports and airports. As a second level of defence, such monitoring facilities will also be installed at all the big metal scrap dealers to rule out the possible presence of radioactive material. 2.5.15.7 Mitigation Plan through Early Response to minor events: In the event of an unexpected failure of a nuclear / radiological system leading to emergency a condition, a series of protective measures is in place to ensure preparedness to minimize the impact of this. The handling of nuclear emergencies requires coordination among different service groups of the nuclear facility. In the event of potential radiological consequences in the public domain, pre‐designated authorities at the three levels i.e. District, State and Centre, will play a vital role. 85
For any unlikely event of release of radioactivity in the public domain or loss of a radioactive source, the emergency response system of DAE can be activated any time through its 24x7 emergency communication system. To ensure their effectiveness, the emergency preparedness plans are rehearsed periodically. 2.5.15.8 Mitigation Plan through robust response mechanism for offsite emergencies at Nuclear Power Plants 2.5.15.8.1 Objective of response : The response to nuclear / radiological emergencies has certain objectives and principles, such as mitigation of accidents at source; prevention of deterministic health effects in individuals; providing first aid and treatment of injuries; reducing the probability of stochastic effects in the population; reduction of psychological impact on the population; and protection of the environment and property, within the constraints of available resources. 2.5.15.8.2 Actions that need to be taken : Several actions are required to effectively handle any emergency without causing panic in the public and to implement the required counter measures. Most of these actions can be planned in advance as indicated below. Notification: Any emergency situation shall be promptly notified to key personnel as per the notification plan. The message conveyed in the notification shall be clear and concise. Notification regarding the conduct of an emergency exercise and actions to be taken shall be conveyed clearly. Hence these are laid down in the required document. Counter Measures:Corrective Actions are required to be taken to rectify the abnormal situations and to bring the plant under control. These are imperative for the return to normalcy. o The types of Counter Measures are decided by the prevailing situation at that point of time. These are important actions to mitigate the consequences of a radiological event and to protect plant personnel, off‐site personnel from radiation. These include sheltering, administration of prophylaxis, banning of contaminated food and water and finally evacuation. It is essential to ensure that the response measure would reduce the overall detriment to public to a level significantly lower than what they would be subject to in the absence of such measures. o Implementation of these measures should be based on the intervention levels as approved by the regulatory authority for initiating the protective measures to limit radiation exposures. Administration of Prophylaxis: Intake of specific stable compounds which have a reducing or blocking effect on the uptake of certain radionuclides. The thyroid gland is the most vulnerable organ in the body that is likely to be damaged by radiation. If exposure to radio iodine is anticipated, like in the case of radioactive releases following a major reactor accident, administration of appropriate dosage of Potassium Iodide (KI) Potassium Iodate (KIO3) will prevent the uptake of radioactive Iodine. For high‐risk individuals, this will protect the thyroid gland from the effects of radiation. For inhalation route of exposure; decision should be taken to administer stable iodine as soon as possible depending on the assessed potential and estimated quantity of 86
radioiodine release. o Administration of stable iodine prior to intake through ingestion route is as effective as for inhalation route. Sheltering: Sheltering means “staying indoors” and refrain from going out until further advice in the event of an emergency. Sheltering normally spans period of 12 to 24 hours. o Certain radiation emergency scenarios envisage a sheltering requirement for a large number of people. Normally, community centres, schools, colleges, religious places, marriage halls, etc., are chosen for this purpose. These places need to be identified by SDMAs / DDMAs prior to the emergency period, with assistance from DAE / DRDO. Evacuation:Evacuation is a very effective countermeasure but needs careful consideration before a decision for implementation is taken. The benefits and risks of this countermeasure have to be carefully assessed in terms of dose averted and the effects of disruption in social life. Evacuation however is an urgent temporary measure of moving out persons outside the affected area. If radiation levels in the affected zone continue to exist beyond acceptable levels, then long term relocation of the evacuees should be resorted to. Contamination Control Measures:Contamination control measures are meant to check the spread of radioactive contamination. These actions include segregation of highly contaminated persons and decontaminating them, decontamination of vehicles, regulating the traffic, access control to prevent unauthorized entry and to keep traffic routes open solely from the emergency response point of view, confiscation of contaminated food items like meat, fish, poultry products, milk, vegetables, fruits. Impounding of food, banning the consumption of contaminated water/milk, banning fishing in contaminated river/sea water, identification of contaminated soil, its excavation and disposal, decontamination of contaminated dwellings or their disposal, and destroying the contaminated crops and grass should be implemented based on approved procedures. o In emergencies involving actual or possible personal contamination, local hospitals may be confronted with individuals seeking treatment. The hospitals would need to implement procedures that are appropriate for all possible types of contamination. Arrangements shall be made at the national level to treat people who have been exposed or contaminated. These arrangements should include national capability to provide initial treatment of contaminated and/or severely overexposed patients; arrangements to provide advice and expertise to local hospitals; guidelines for local medical facilities on the response to possible emergencies. This would involve all possible emergencies and all types of contamination. Long Term Actions:The following actions are intended to avert dose over a long periods (months/years) or to anticipate and detect medical conditions that may only appear later. A limited delay in their implementation, while measurements are taken and the situation is assessed, would therefore appear to be justified. ‐ Relocation ‐ Longer term agricultural countermeasures and remedial actions; ‐ Longer term countermeasures relating to international trade; ‐ Medical follow‐ups; 87
‐
Decontamination of areas and their return to normal use.
Arrangements shall be made for responding to public concern in an actual or potential nuclear or radiological emergency, for monitoring, for responding to any related health effects and for preventing inappropriate actions on the part of workers and the public. 2.516 Chemical (Terrorism) Disasters Anti‐national elements find terrorism easy to adopt and cost‐effective. They are not only adopting newer modalities but also getting more aggressive. The main aim of terrorists is to intimidate the population, seek attention, or force a legitimately constituted government or organisation, to act or abstain from doing an act. A terrorist attack involving chemical agents differs from a normal terrorist attack as it results in specific effects on health and can cause fatal injuries, create panic, affect the morale of the community, and lower its faith in the government. The targets of terrorists include market places, densely populated areas, public functions, important dignitaries, water and electricity supplies, restaurants/food plazas, malls, places of entertainment, and critical and sensitive military, civil and economic institutions. The possibility of a chemical terrorism attack can be minimised by spreading general awareness and building the capacity of the community, institutions, and governmental and non‐governmental organisations. A well structured, fail‐safe, multi‐ disciplinary and multi‐structural approach Chemical (Terrorism) Disaster Management/Mitigation plan needs to entail, as outlined by the NDMA guidelines, the following measures: 2.5.16.1 Shortterm Plan 2.5.16.1.1 Construction of the legislative and regulatory framework by dovetailing various Acts, Rules and Regulations with the Disaster Management Act, 2005. ii) Prevention—by integrating the surveillance system based on intelligence inputs, establishing a mechanism for risk and vulnerability assessment and developing indicators for early warning system. 2.5.16.2 Preparedness—by identifying infrastructure needs for formulating the mitigation plans, implementing a financial strategy for allocation of funds, creating trained medical first responders/quick reaction medical teams and equipping them with all material and medical logistics, establishing physical and collective protection and advance detection technologies, temporary decontamination facilities, communication and networking systems with appropriate intra‐hospital and inter‐linkages with state ambulance/transport services, state police departments and other emergency services including fire, mobile telemedicine/tele‐health services. The overall capacity development including human and resource development, training, education and knowledge management will be focused as a part of the short‐term plan. 2.5.16.3 The mediumterm Plan 2.5.16.3.1 Prevention—by strengthening of integrated surveillance systems and early warning systems at regional levels and incorporating specific disaster risk reduction measures for the management of chemical terrorism by testing the disaster management plans prepared in the previous phases. 88
2.5.16.3.2 Preparedness—by institutionalisation of an advanced emergency medical response system (networking ambulance services with hospitals), intensification of the processes undertaken in the first period (short‐term) and capacity development. 2.5.16.4 The longterm action Plan: The Long term Planwill focus on the intensification of the activities started in the previous phases and initiation of new activities based upon emerging trends. The activities including community awareness, education and training will be continued in all phases and updated with changing times. The plans shall address important issues like: (i) Implementation of the national emergency plan. (ii) Inclusion of the management of Chemical (Terrorism) Disasters in the educational curriculum. (iii) Testing of various hospital disaster management plans on the basis of well established indicators and using mock drills. (iv) Further strengthening of the National Disaster Response Force, fire services, medical first responders, paramedics and other emergency responders. (v) Build chemical terrorism contingencies into chemical (industrial) response plans. (vi) Creation and expansion of an integrated all‐hazard national laboratory network. (vii) Establishment of knowledge management centres and localised networking to enable all the emergency responders to communicate with each other. (viii) Constant up gradation should aim to use the latest available technology. Robots for investigation and action may also be adopted. 2.6 Financial Plan 2.6.1 Funding Arrangements Section 38 (d) of the DM Act provides that “The State Governments will take measures with respect to allocation of funds for measures for prevention of disaster, mitigation, capacity‐ building and preparedness by the departments of the Government of the State in accordance with the provisions of the State Plan and the District Plan.” The XI Plan’s shift in focus from response‐centric disaster management to disaster mitigation brings with it an obligation to give impetus to projects and programmes that develop and nurture both, the culture of disaster safety and integration of disaster prevention and mitigation into the development process. Funding arrangements for these projects will be done through mainstreaming of disaster management into developmental projects / programmes and additional budgetary support. Despite the ongoing schemes under Department of Agriculture & Cooperation providing mainstreaming of disaster management in its developmental projects / programmes, it will be explored for an allocation of 10% funds under RKVY, NFSM, NHM, ISOPOM and MMA for specific drought intervention measures in drought affected States. Besides, the Diesel Subsidy Scheme would be reviewed and strengthened to include power subsidy to States for providing supplementary irrigation through pump sets for standing crops. 89
The long‐term programmes like NRDWP and IAY has a special component to address to the specific needs during the natural disasters including drought. On the same lines, the nodal ministries dealing with various long‐term mitigation programmes to include a special component for specific intervention in drought affected areas. 2.6.2 Mainstreaming of Disaster Management The Planning Commission will factor mitigation projects into the Five Year Plans and Annual Plans of the Central Ministries / Departments as well as the State Plans. The guidelines on various disasters issued by the NDMA will form the basis for the formulation of Plans for mitigation projects at the national, state and district level for various types of disasters, including drought. The projects to be taken up by the State Governments, based on their respective vulnerability, will be included by the State Governments in their respective State Plans As a long‐term perspective of mitigating drought in rainfed areas in the country, a National Rainfed Areas Authority (NRAA) has been established and brought under the Planning Commission. They have been mandated to take specific programmes in rainfed areas which are predominantly drought affected. In the year 2009‐10, a package for “Drought Mitigation in Bundelkhand areas of Madhya Pradesh and Uttar Pradesh” has been approved by the Government and is under implementation. 2.6.3 Convergence Every effort will also be made to pool available resources in ongoing programmes through arranging convergence of the appropriate components. At present the Integrated Water Management Programme (IWMP) under the Department of Land Resources has the convergence of three programmes DPAP, DDP and IWDP. 2.6.4 Budgetary Support The modalities of financing the Project as a Central Sector Scheme or as a Centrally Sponsored Scheme, with Government of India contributing 75% and States contributing 25% will be finalized in consultation with the Planning Commission, Ministry of Finance. alth (Inputs of the Ministries regarding respective allocation of funds/budget in their plan and non‐plan schemes and programmes for activities related with disaster mitigation including preparedness and capacity building are awaited, and shall be incorporated once received.) 2.6.5 Expenditure Finance Committee Memo In order to ensure that any new scheme will meet the concerns of mitigation, Government of India has issued detailed guidelines vide letter no. 37(4)/PF‐II/2003 dated 19.06.2009. Following questions are required to be replied in the Expenditure Finance Committee Memo for Plan schemes, whenever a new Scheme is considered by the Government of India: 90
(i)
(ii)
(iii)
(iv)
(v)
(vi) (vii)
What is the location of the project area? Reasons for selecting the site. Have possible alternatives sites been considered? Is the type of activity envisaged in the area compatible with the provisions of relevant NDMA Guidelines? Identify the possible risks and analyse the likelihood and impact from earthquakes, floods, cyclones and landslides due to the location of the project sites as well as through secondary evidence. What are the land use directives, regulations applicable? List preventive measures enshrined in regulations which are to be complied with and confirm compliance. Based on the prioritization of risks, the mitigation measures being contemplated, both structural and non‐structural. Confirmation that the implementation of the selected mitigation measures will not create new risks. Confirmation that the design and engineering of the structure has taken into consideration the National Building Code 2005, the appropriate BIS Codes4 and the NDMA guidelines. Other sources such as Indian Road Congress Manual, Ministry of Road Transport, Highways and Shipping manual, Railway Board manual, Central Public Health Engineering Organisation (Min. of Urban Development) manual, Central Electricity Authority manual and Central Water Commission manual etc may also be consulted where applicable. Has the cost of disaster treatment/mitigation measures been included in the overall project cost? Also indicate that the whole process of risk assessment has been done based on available information and secondary evidence and the mitigation measure(s) are in conformity with the statutory and other regulatory requirements and are the most viable ones in the present circumstances.
The EFC Memo has since been revised vide letter No. 1(1) 2011‐PF.II dated 09.03.2012, and the following points have been included: (i) If the project involves creation/modification of structural and engineering assets or change in land use plan, disaster management concerns as brought out in OM. NO. 27(iv)/PF‐II/2003 dated 19.06.2009 should be assessed. A self‐certification in this regard may be enclosed with the EFC memo. (Para 5.3) (ii) Whether the project is secured from all the natural/manmade disasters like floods, cyclones, earthquakes, tsunami etc. (Para 5.9)
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CHAPTER III
DISASTER RESPONSE The primary responsibility for disaster management rests with the State Governments. The Central Government extends cooperation and assistance to the State Governments as required by them or otherwise deemed appropriate by it. Response phase is the most important component of all the processes involved in disaster management, as it determines the effectiveness or otherwise of all the measures taken by all the agencies preceding it. It is therefore necessary to provide for the activation of a coordination and response structure at the national level. This structure, comprising relevant ministries /departments/agencies of the GoI, is required to provide prompt and effective support to the concerned State government; intervene directly in union territories; and ensure coordination in this regard among the concerned Central Ministries/ Departments/ Organisations. . This Chapter seeks to lay down a consistent grid of response measures, such as issuing early warnings and alerts, , timely deployment of secondary response agencies to support the primary responders, and provision of financial assistance for relief and recovery. 3.1 Scope of the Disaster Response Plan This Plan provides a blueprint for the GoI to provide an effective support to the State Government for Section 36 (c) of the Disaster Act, response to a disaster, through concerned Management 2005,stipulates that the central ministries/ departments/agencies. It seeks to ministries/ departments shall provide for the following: be responsible for responding (i) assigns roles and responsibilities for promptly to any threatening different ministries/departments/ disaster situation or disaster, in accordance with the agencies (ii) disseminates early warning in areas guidelines of the National likely to be affected by disasters and Authority or the directions of National Executive provides relevant information to all the Committee in this regard. response agencies (iii) activates all concerned agencies for appropriate response following a disaster and assists the State Government personnel in various response operations such as search and rescue and evacuation, among others. (iv) ensures that necessary expertise and resources are available to support the personnel of the State Governments for responding to different types of disasters (v) provides appropriate financial support for the disbursement of relief assistance to the affected population (vi) recommends preparedness measures to all participating ministries/
92
(vii)
departments/agencies of the GoI lays down provisions for information concerning disasters to be communicated to concerned government officials, media, NGOs, local governments and the civil society.
3.1.1 Planning assumptions The National Response Plan has been formulated keeping certain assumptions, viz.,:
(i)
(ii)
(iii)
(iv) (v)
the management of disasters is the primary responsibility of the State Government. The first response has to be organised at the community level with the support of Panchayati Raj Institutions and by the district administration. the GoI comes to the support of the concerned State Government by providing requisite logistics, financial, and human resource support to the State Government as per the request of the latter. the GoI has the requisite mandate, expertise and critical resources to provide prompt assistance to the affected State Government for during the disaster response phase. the National Response Plan will work with the support of existing contingency plans, SOPs, manuals, and guidelines; it does not supersede them. the National Response Plan will be supported by necessary resources, facilities, and trained personnel.
3.1.2. Role of State, District and Local Authorities As envisaged in the National Policy on Disaster Management (2009) it is the primary responsibility of the State Governments/SDMAs to monitor and assess any developing situation and keep the NDMA and NEC apprised of the same. They will also be responsible to constantly evaluate their own capabilities to handle that situation and project the anticipated requirements for the Central resources well in time. Inter‐state assistance and cooperation will be encouraged. The States/ UTs will also be responsible to develop their own response potential progressively and complete the process at the earliest. This will comprise training and equipping of State response forces, community preparedness, training and creation of response caches at the District level. District level preparations will provide the cutting edge to all response activities. Local authorities, PRIs and ULBs will play a significant role in the entire process, particularly in response and rescue operations, relief and rehabilitation, awareness generation and disaster preparedness, restoration of livelihood options and coordination with NGOs and civil society. 3.1.3 Role of the National Executive Council (NEC) The NEC will coordinate response in the event of any threatening disaster situation or disaster. While disaster specific guidelines will be formulated by NDMA, NEC may give directions to the concerned Ministries/ Departments of the GoI, the State Governments and the State Authorities regarding measures to be taken by them in response to any specific threatening disaster situation or disaster. 93
3.1.4 Role of the Nodal and Other Central Ministries and Departments For various types of disasters, and different activities of disaster response, the nodal Ministry concerned will chart out detailed Response Plans which will be integrated into the National Response Plan. The NEC coordinates response in the event of any threatening disaster situation or disaster. 3.2 Authorities & Ministerial Committees
National Disaster Response Force and National Disaster Response Fund While Section 44 of the Disaster Management Act, 2005, provides for the constitution of a National Disaster Response Force for a specialist response to a threatening disaster situation or disaster, Section 46 allows for the constitution of a National Disaster Response Fund towards meeting expenses for emergency response, relief and rehabilitation.
The NEC administers the National Disaster Response Fund through the Ministry of Home Affairs to augment the resources of State Governments for relief and immediate restoration with reference to the natural disasters of avalanche, cyclone, cloudburst, earthquake, tsunami, fire, floods, hailstorm and landslide. Similarly, the relief and restoration measures by the State Governments in respect of drought, pest attack and frost/ cold wave are supported by National Disaster Response Fund through the Ministry of Agriculture. . The MHA will coordinate with relevant ministries/departments/agencies of the GoI and extend all possible support. These include: (i) relevant Central ministries/ departments/ agencies which are expected to provide assistance to the affected state as per Standard Operating Procedures (SOPs) under the National Response Plan (ii) the defence forces, Central Armed Police Forces (CAPFs), the National Disaster Minimum standards of relief Response Force (NDRF) and other Section 12 of the Disaster uniformed services which comprise the Management Act, 2005, states that the National Disaster Management GoI’s response to aid the State authorities shall recommend (iii) the Indian Meteorological Department and a Authority guidelines for minimum standards number of other specialised scientific institutions which constitute key early of relief to be provided to persons affected by a disaster. warning and monitoring agencies (iv) Civil defence volunteers, home guards and fire services, through the concerned administrative departments of the State Governments There are some international bodies as well as civil society organisations, which have a role to play in disaster response. Representatives of the private sector and their apex organisations like FICCI, ASSOCHAM and CII can play a supportive role in disaster response through their members. 94
3.2.1 Cabinet Committee on Management of Natural Calamities The Cabinet Committee on Management of Natural Calamities (CCMNC) discharges its responsibilities with the support of the MHA, with some exceptions. In cases concerning the management of drought and epidemics, the CCMNC carries out its functions with the support of the Ministry of Agriculture and Cooperation as well as the Ministry of Health and Family Welfare (MoHFW), respectively. The CCMNC’s role is to (i) oversee all aspects of the management of natural calamities (ii) monitor the situation (iii) identify measures and programmes that would mitigate the impact of disasters (iv) monitor and, suggest long‐term measures for disaster prevention (v) conceptualise and recommend programmes to strengthen public resilience 3.2.2 Cabinet Committee on Security Headed by the Prime Minister, the Cabinet Committee on Security (CCS) comprises the Union Ministers of Defence, Home and Finance as members. The committee gets activated when a disaster bears implications from a security point of view. Its role is to: (vii) oversee all aspects of preparedness, mitigation and management of chemical, biological, radiological and nuclear (CBRN) emergencies (viii) review risks of CBRN emergencies from time to time, giving directions for measures considered necessary for disaster prevention, mitigation, preparedness and effective response 3.2.3 Empowered Group of Ministers on Disaster Management Constituted in the aftermath of a hazard event when considered necessary, the composition of the Empowered Group of Ministers (EGoM) on Disaster Management is contingent upon the type of disaster to be managed. Its functions are to: (i) deliberate on the report of the National Crisis Management Committee/National Executive Committee and give appropriate directions (ii) decide on necessary action to provide immediate relief to affected populations (iii) consider necessary recovery and rehabilitation measures (iv) consider long‐term institutional and organisational measures for the management and mitigation of such calamities 3.2.4 High Level Committee The High Level Committee’s (HLC) is headed by the Union Agriculture Minister as chairman. Its members include the Union ministers of Home, Finance and Agriculture, as well as the Deputy Chairman of the Planning Commission. The Vice‐Chairman of National Disaster Management Authority participates in the meetings of the HLC as a special invitee. 95
The HLC’s role is to: (i) approve the GoI’s financial assistance to the affected state government from the corpus of the National Disaster Response Fund (ii) base its approval on the recommendations of the Inter‐Ministerial Group headed by the Union Home Secretary, with the exception of drought, hailstorm and pest attack situations, when the Inter‐Ministerial Group would be headed by the Union Agriculture Secretary 3.2.5 National Crisis Management Committee This Apex Committee is chaired by the Cabinet Secretary. The members of the National Crisis Management Committee (NCMC) include : (i) Principal Secretary to the Prime Minister (ii) Home Secretary (iii) Defence Secretary (iv) Secretary (Coordination) Cabinet Secretariat (v) Secretary (Security) (vi) Deputy NSA and Secretary, National Security Council Secretariat (vii) Director, Intelligence Bureau (viii) Secretary (R) Cabinet Secretariat; (ix) Secretary, NDMA; and (x) Secretary, Ministry of Information and Broadcasting Depending on the type of disaster at hand, the concerned Secretary or Head of department/agency would be invited to NCMC’s meetings. The Secretary (Security), Cabinet Secretariat, is the convener of the NCMC. The NCMC’s role is to: (i) oversee the command, control and coordination of disaster response at the national level (ii) provide directions as and when required to ministries/departments/agencies or the National Executive Committee comprising members from the concerned ministry/department of the GoI All ministries/departments/agencies are required to comply with the instructions of the NCMC. Relief measures 3.3 Activation of the National Response Section 13 of the Disaster Act, 2005, The Act provides for a clear activation sequence in the Management stipulates that in the case of event of a natural disaster: disasters of severe magnitude, the National Authority may (i) the concerned State government would assume recommend relief in repayment direct responsibility in the event of a disaster of loans or fresh loans to (ii) the MHA would assume direct responsibility in affected individuals on such case of Union Territories concessional terms as may be (iii) The National Response Plan would come into deemed appropriate. operation when the concerned state government 96
(iv)
(v)
makes a specific request for GoI’s assistance, financial, logistical or in terms of human resources – including transport, search, rescue and relief operations by air, inter‐State movement of relief materials , among others. the National Response Plan would apply to those situations where one ministry/department/agency of the GoI requests the assistance of the MHA and other ministries/departments/agencies of the GoI. the National Response Plan would apply to those response actions where the GoI has primary jurisdiction: organisation of international assistance, response on high seas, impact assessment of disasters with the assistance of international agencies, and financial assistance from the National Disaster Response Fund.
3.4 Response Mechanism As stated earlier, the primary responsibility for organising response and relief as well as recovery in disaster affected areas lies with the state government. However, at times their efforts need to be strengthened and supplemented with assistance from Central agencies. This chapter lays down the parameters for the GoI’s response to a disaster. 3.4.1 Responsibilities of Central ministries/departments for specific disasters The following central ministries/departments have been entrusted with the primary responsibility of coordination in respect of certain specific disaster situations, natural as well as human‐induced: S. No. Disaster Ministry/Department Earthquake Ministry of Home Affairs 1 2
Flood
Ministry of Home Affairs
3
Ministry of Agriculture and Cooperation
4
Drought, Hailstorm, Cold Wave & Frost, Pest Attack Landslide
Ministry of Home Affairs
5
Avalanche
Ministry of Home Affairs
6
Ministry of Home Affairs
7
Cyclone/Tornado/Severe Cyclone, Very Severe Cyclone Tsunami
8
Forest Fire
Ministry of Environment and Forests
9
Nuclear accident inside or Ministry of Home Affairs/Department of outside the country which poses Atomic Energy health or other hazards to people in India
97
Ministry of Home Affairs
10
Ministry of Environment and Forests
11
Chemical Disasters including Industrial accidents Biological Disasters
12
Disasters in Mines
13
Rail Accidents
Ministry of Coal/ Ministry of Mines / concerned ministries Ministry of Railway
14
Road Accidents
15
Civil Aviation Accidents
16
Oil Spill
Ministry of Health and Family Welfare
Ministry of Road Transport, Highways and Shipping Ministry of Civil Aviation Coast Guard in coordination with concerned ministries/departments.
The respective ministries/departments support the National Response functions related to their area of responsibilities. The MHA coordinates with all ministries/departments for the management of natural disasters and other crises as called upon to do so. As per instructions issued by the Cabinet Secretariat, the ministries/departments are required to formulate their respective response to the natural or humanly induced hazard events that they are primarily responsible for managing, as mentioned above in the table. The Central ministries/departments are required to: 1) take measures necessary for disaster prevention, mitigation, preparedness and capacity‐building in their respective jurisdictions 2) integrate into their development plans and projects, measures for disaster prevention and mitigation 3) respond promptly to any threatening disaster situation or disaster in accordance with the NDMA’s guidelines 4) review enactments, policies and regulations with a view to incorporating in them provisions for disaster prevention, mitigation and preparedness 5) allocate funds towards measures aimed at disaster prevention, mitigation, capacity‐building and preparedness 3.4.2 National Disaster Response Force Constituted by the GoI under the Act, the National Disaster Response Force (NDRF) is a specialist response force required to provide assistance to the concerned state government/district administration in the event of an imminent hazard event or in its aftermath. The NDRF is a multi‐disciplinary, multi‐skilled, high‐tech force functioning under the control, direction and supervision of the NDMA. While the State Governments are expected to set up State Disaster Response Force as the first respsonders, NDRF will be an important institution among the second responders. 98
At present, the NDRF comprises: 1) 10 battalions; three each from the Border Security Force (BSF) and the Central Reserve Police Force (CRPF), and two each from the Central Industrial Security Force (CISF) as well as the Indo‐Tibetan Border Police (ITBP). Each battalion is 1,149 strong. 2) self‐contained search and rescue teams of 47 personnel each in each battalion, including engineers, technicians, electricians, dog squads and paramedics. 3) four battalions with NDRF are further trained to deal with situations of chemical, biological, radiological and nuclear emergencies 4) teams equipped with special training in Medical First Response (MFR), Collapsed Structure Search and Rescue (CSSR), and water rescue, among others Role of District Disaster Management Authority in disaster response In response to an impending or imminent hazard event and in its aftermath, the DDMA is required to: (a) give directions for the release and use of resources available with any department of the state government or local authority in the district (b) control and restrict vehicular traffic to, from and within, the vulnerable or affected area; control and restrict the access of any individual to a vulnerable or affected area; remove debris; conduct search and rescue operations (c) provide shelter, food, drinking water and essential provisions, health care and services (d) establish emergency communication systems in the affected area (e) make arrangements for the disposal of the unclaimed dead bodies (f) recommend to any state government department or authority or body under the state government at the district level to take such measures as are necessary in its opinion (g) approach relevant experts and consultants to advise and assist if considered necessary (h) procure exclusive or preferential use of amenities from any authority or person (i) construct temporary bridges or other necessary structures and demolish structures which may be hazardous to public welfare or aggravate the effects of the disaster (j) ensure that NGOs carry out their activities an equitable and non‐discriminatory manner For details, refer to the provisions of the Act.
The NDRF battalions are located at 10 different locations across the country based on their proximity to areas with a vulnerability profile. This is done to cut down the response time for their deployment. In the preparatory phase or in a threatening disaster situation. The deployment of these forces is done in consultation with the state government. 3.4.3 District Level: District Development Management Authority The district administration is the focal point for implementation of all government activities. Considerable powers have been vested in the District Collector to carry out prompt relief and response operations. Under the Act, the District Disaster Management Authority (DDMA) in each district is headed by the District Collector/ Deputy Commissioner/District Magistrate as the case may be, with the elected representative of the local authority as co‐chairperson. 99
The DDMA acts as the planning, coordinating and implementing body for disaster management at the district level as per the guidelines of the NDMA and the SDMA. 3.4.4 Local Authorities Under the Act, local authorities include Panchayati Raj Institutions (PRI) and Urban Local Bodies (ULBs) such as Panchayats, municipalities, district and cantonment boards and town planning authorities which control and manage civic services. They play a significant role in disaster management in accordance with the guidelines laid down by the NDMA, SDMA and DDMA, respectively ‐‐ particularly in response and rescue operations, relief and rehabilitation, awareness generation, disaster preparedness, restoration of livelihoods and coordination with non‐governmental organizations or members of the civil society. 3.4.5 Metropolitan Cities and Towns Towns and cities in India are managed by a variety of elected urban local bodies. Therefore, the response structure for disaster management, too, varies from city to city. Thus, in the: 1) towns managed by a municipality, disaster response is primarily handled by the district administration ‐‐ as head of the DDMA, the District Magistrate is responsible for response and relief in the aftermath of a disaster 2) cities managed by municipal corporation, the Municipal Commissioner is responsible for managing disasters in the whole municipal area ‐‐ the District Magistrate/Deputy Commissioner as head of the DDMA coordinates response and relief within the jurisdictional limits of the district. In such situations, the Divisional Commissioner coordinates among the affected districts and works closely with the Municipal Commissioner 3) some metropolitan cities, the elected Mayor of the city is responsible for coordinating response and relief ‐‐ the Municipal Commissioner and Police Commissioner render support, while the District Magistrate/Deputy Commissioner is responsible for response and relief within his jurisdiction. 3.5 Early Warning Systems 3.5.1 Disasterresponse operational structure: early warning phase The GoI has set up or designated specific agencies to monitor and provide early warning information regarding any impending hazard event. These agencies provide inputs to the MHA which then issues alerts and warnings through various communication channels. The National Emergency Operations Centre (NEOC), MHA, is connected to: the control rooms of all agencies designated to provide early warnings information about hazard events the operations room of the state control rooms and the Integrated Defence Staff (IDS) 100
Once the NEOC gets early warning inputs, it: notifies designated authorities in the GoI, state and district levels, respectively provides alerts and warnings to mass media networks, including print media, radio and television channels On their part, the concerned state government and district administration: disseminate such alerts and warnings on the ground through state level media and public announcements 3.5.2 Response functions of Central ministries/departments/agencies in the early warning phase The NEOC, MHA, North Block, New Delhi, will act as the communication and coordination hub during this phase. It will: maintain constant touch with early warning agencies for updated inputs inform the State Emergency Operations Centre (SEOC) and District Emergency Operations Centre (DEOC) through telephone, sms, e‐fax and email messaging services notify designated authorities/officials at the GoI, state and district levels, respectively prepare for a meeting of the NEC and NCMC put together situation reports on the developing situation The DM Division, MHA will: communicate and coordinate with designated early warning agencies communicate and coordinate with state Relief Commissioner/Secretary (DM)/ District Magistrate in areas likely to be affected by the hazard event communicate and coordinate with concerned Central ministries/departments/ agencies providing support at the national level mobilise reinforcements from the NDRF, defence forces and the CAPFs put together transportation plans for moving resources prepare for a meeting of the NEC and NCMC brief the media and other public information channels on the situation The NDRF will: notify concerned battalions to be on standby coordinate with the concerned state government and district administration for the deployment of NDRF coordinate with MHA/NDMA/Ministry of Defence/Ministry of Civil Aviation/Ministry of Railways for transportation of response teams and equipment position in advance Search and Rescue (SAR) teams/personnel/equipment in locations likely to be hit The MoHFW will: mobilise Quick Response Teams (QRT)/Quick Medical Response Teams 101
(QMRT) coordinate with the state government and district administration for deployment of QRT/QMRTs secure supplies of medicines/vaccines/disinfectants anticipate and prepare for special emergency medical needs
The MoD, IDS Staff HQ, will: identify battalions/ teams / units for deployment in areas likely to be affected provide aircraft for evacuation position in advance QRT/QMRTs/ equipment in the state/district likely to be affected Other designated Central ministries/departments will: mobilise and keep on standby emergency response teams/QRTs/personnel/ equipment coordinate with concerned line departments of the state government to assess the possible extent of Central assistance likely to be needed assess the resources/equipment needed by the state for immediate repair/ restoration of critical public utilities and infrastructure such as telecommunication, roads and highways, railways, power, and water supply
The CWC and IMD will: CWC and IMD will collect and process hydrological and hydro‐meteorological data at its network of hydrological observation/ meteorological stations located in major river basins throughout the country. CWC will monitor water level of the rivers and its tributaries in major river basins, dams/reservoirs and will provide early warning to the States/District Administration regarding rising water levels in rivers and floods at its flood forecasting stations. It will also pass all the critical information early warning/ forecasts to the MHA Control Room/ NEOS, State and District Control Room and other stakeholders on a daily basis. CWC will notify all the user agencies including the concerned State and Central Government agencies. CWC will also transmit flood information to user agencies and public using its website http://india‐water.gov.in/ffs. Flood information will also be passed on to All India Radio and Doordarshan in the case of moderate flood and above by the concerned field divisions for wide publicity among the affected population. 3.5.3 Early warning functions of Central agencies The GoI has designated the following Central agencies to monitor and predict hazards, as well as issue forecasts. Disasters Agencies Cyclone
102
India Meteorological Department
Tsunami
India National Centre for Oceanic Information Services
Floods
Central Water Commission
Landslides
Geological Survey of India
Avalanches
Snow and Avalanche Study Establishment
The specific responsibilities of each of the designated agencies will be discussed in further detail in the relevant sections. Based on their inputs, the NEOC will issue notices of Watch, Alert and Warning to designated authorities in the GoI, state government, district administration, as well as to the SEOC and DEOC. The early warning agencies will: i. monitor the situation constantly through their control rooms ii. maintain equipment in proper functioning order and conduct simulation drills to test their efficacy iii. develop simple and user friendly messages to notify all designated agencies/ mass media networks, online media and public announcement services iv. organise coordination meetings with primary and supporting agencies for generation and dissemination of early warning messages The early warning agencies will go by the established procedure of response. They will: i. track developments in regard to specific hazards ii. inform the District Magistrate or other designated authorities/agencies at district level about the impending hazard event iii. inform the Secretary (Relief/ DM) or State Relief Commissioner of the concerned state or union territory iv. inform the JS (DM) and/or Director (Response) DM, MHA v. send information on early warning to NEOC and NDMA control room vi. send information to mass media networks, including print media, radio and television channels Each hazard event has different parameters of severity, early warning, and time available for response. However, all early warning agencies follow a uniform system of categorisation, indicating severe, moderate and slight hazard event, corresponding to colour‐coded stages of urgency: red, orange and yellow. 3.5.4 Communication of early warning information All alerts will be transmitted to the NEOC, MHA. While generating and transmitting alerts to the NEOC, the concerned agency is required to indicate the category of the expected hazard event as well as its corresponding stage. Stage red All early warning agencies will transmit alerts to the NEOC, MHA immediately on receiving the information and not later than 30 minutes of the occurrence of the disaster event assuming the magnitude of stage red. 103
The NEOC will transmit three hourly updates to the: 1) HS/Secretary (BM)/ JS (DM)/ PS to HM/ PS to MoS for Home 2) Vice Chairperson, Members and nodal officer of NDMA 3) designated officers in PMO/ Cabinet Secretariat 4) ministries/departments/organisations/agencies supporting emergency functions with instructions to contact their counterparts in the states and provide necessary assistance 5) state government and district administration Apart from alerts, a Situation Report (SITREP) will be sent once a day or more, depending on unfolding events. Stage orange All early warning agencies will be required to transmit 12 hourly updates. The agency generating alerts will inform the NEOC within 30 minutes of receiving information about an upgrade of stage yellow to orange. The NEOC will issue alerts to the: 1) Secretary (DM)/Relief Commissioner of the state government and District Magistrate of the concerned district 2) HS/Secretary (Border Management)/ JS (DM)/ PS to HM/ PS to MoS for Home, and designated officials of NDMA 3) designated officers in PMO/ Cabinet Secretariat 4) state government and district administration The NEOC will inform all concerned ministries/ departments/ agencies to make all necessary standby arrangements. The DM Division, MHA, will coordinate with the concerned state and Central ministries/ departments and activate the machinery for response. Stage yellow The NEOC will transmit information about yellow stage alerts to: 1) the JS (DM), MHA 2) the concerned state government and district administration 3.6 Response Structure & Planning 3.6.1 Response structure Catastrophic disasters like earthquakes, floods and tsunami, among others, result in a large number of casualties and inflict tremendous damage on property and infrastructure. Responding to such emergencies stretches the resources of district and state administrations to the utmost. In such a context, the concerned State Government and district administration may require and seek, the assistance of Central ministries/departments and agencies like the defence forces and the CAPFs. In addition, the State Government may also receive assistance from other State 104
Governments, UN agencies, as well as international and national NGOs. However, the acceptance of offer by the UN agencies or international NGOs in disaster response will require clearance by the Ministry of Home Affairs. The areas in which a state government or union territory administration seeks Central assistance include: remote sensing data to assess the extent of disaster affected areas and magnitude of disaster early warning information specialised resources such as water purifying units, bailey bridges technical expertise as in search and rescue and emergency medical response and restoring public utilities and infrastructure aviation support for rescue and evacuation transportation support, by road, rail, air, and ship in providing relief relief material such as tents, blankets and clothing; and financial support Over the years, the GoI has put in place a flexible response mechanism for a prompt and effective delivery of services as well as resources to assist a state government or union territory hit hard by a natural disaster. 3.6.2 Response Action Plan In the aftermath of a hazard event, the concerned state government/district administration may request the GoI for specialised assistance to deal with the situation. In such cases the secondary response is provided by the: i. the defence forces ii. the CAPFs iii. the NDRF and iv. specialised ministries/ agencies When requisitioned by the District Magistrate/Collector/ Deputy Commissioner, the local area commander of the army/air force/navy, the Central paramilitary forces or the NDRF, will deploy personnel without seeking prior approval of higher authorities, obtaining permission subsequently. If the situation escalates, the state government will submit a request to the Secretary (BM), MHA. It is the task of the district administration to suggest in precise terms the assistance expected of the first response forces. Once the task is accomplished, they should be de‐ requisitioned at the earliest. 3.6.3 Requisitioning the defence forces Due to their considerable presence across the country, the resources at their disposal and their proven ability to mount effective disaster response, the defence forces ‐‐ Indian Army, Navy and Air Force as well as the Territorial Army and BRO ‐‐ comprise a significant first response of the GoI in major hazard event situations. Called upon to assist the civilian administration in disaster 105
situations under the Aid to Civil Authority Manual, the defence forces carry out specific tasks required of them. These include: S & R operations logistical support for evacuation of people, including provision of vehicles, helicopters and aircraft air‐dropping food supplies and essential commodities in inaccessible areas air and ground transportation of relief material restoring communication providing health and medical facilities and, if need be, setting up health camps and field hospitals in the affected area 3.6.4 Requisitioning the Central Armed Police Forces Like the defence forces, the CAPFs, too, have a considerable presence across the country with a corresponding resource base and specialised expertise. Among these are: I. the BSF’s aviation resources capability II. the ITBP’s inbuilt capacity for high altitude rescue III. the CISF’s fire fighting capability and capacity to respond to industrial disasters Due to these capabilities, the CAPFs are given clearly specified tasks, such as: 1) SAR operations 2) evacuation operations 3) maintenance of law and order 3.6.5 Requisitioning the National Disaster Response Force The specialist response teams in the 10 battalions of the NDRF are fully equipped to respond to all types of hazard events. The battalions are placed in 10 different strategic locations across the country. Wherever necessary, the MHA/NDMA shall, in coordination with the Ministry of Civil Aviation, arrange an airlift of NDRF teams. The NDRF battalions have located its Teams/Coys at 20 different highly vulnerable locations of the country for the purpose of proactive availability for disaster response. In addition, in case of threatening disasters situations, the teams of the NDRF are also pre‐ positioned on the advance requisition of the State authorities. NDRF’s capability in disaster response includes SAR and medical first response. Four of its battalions are trained to respond to CBRN emergencies and the remaining are under the process of attaining the capability of responding to CBRN emergencies. Locations of the Battalions of NDRF Sr. No. Battalion of NDRF Location of the Battalion 1. 1 Bn NDRF Guwahati (Assam) 2. 2 Bn NDRF Kolkata (WB) 3. 3 Bn NDRF Mundali (Odisha) 4. 4 Bn NDRF Arokonam (Tamil Nadu) 106
5. 6. 7. 8. 9. 10.
5 Bn NDRF 6 Bn NDRF 7 Bn NDRF 81 Bn NDRF 9 Bn NDRF 10 Bn NDRF
Pune (Maharashtra) Gandhi Nagar (Gujarat) Bathinda (Punjab) Gaziabad (UP) Patna (Bihar) Guntur (AP)
Armed with a wide range of capabilities, the NDRF is able to undertake a variety of SAR operations. These include: i. collapsed structure search and rescue ii. medical first response iii. mountain rescue iv. flood rescue v. deep water rescue vi. rope rescue vii. confined space rescue NDRF’s SAR teams are equipped to undertake 24 hour operations and be self‐sufficient in food, shelter, medical care, communications, and technical supplies for 72 hours. Its forces have standard equipment and the necessary training in different emergency management skills and can provide immediate response atshort notice.
Search and rescue capabilities of the National Disaster Response Force NDRF SAR teams have developed expertise in the following: physical, canine, and electronic search rescue operations in building structures ranging from reinforced concrete and non‐ reinforced concrete and wood to steel frame, and wood frame ability to make assessments of structural integrity in buildings in rescue operations proficiency in making assessments of hazardous material in rescue operations rescue efforts demanding heavy equipment operations providing advanced life support, specialising in crush syndrome and confined space medicine state‐of‐the‐art communications with the DEOC and police control rooms
3.7 Response functions of Central ministries, departments and agencies in the aftermath of a disaster Concerned Central ministries, departments and agencies have been assigned specific response functions in the immediate aftermath of a natural disaster. These include evacuation, search and rescue operations, and provision of emergency medical relief, among others. 3.7.1 Evacuation The State Government/district administration is responsible for evacuating people from 107
areas likely to be affected by hazard events to safe areas – especially when there is an imminent threat of a tsunami, flood or cyclone. Therefore, it is imperative for a state government/district administration to have an evacuation plan. However, the GoI may be approached for assistance in specific situations. These include: i. evacuation by aircraft of people stranded due to inclement weather, landslide, avalanche or flash floods in inaccessible and mountainous areas ii. evacuation by aircraft or boats of people from the islands of Andaman and Nicobar, and Lakshadweep, in the case of tsunami or cyclone The MHA will coordinate with the MoD, the Ministry of Civil Aviation and the Ministry of Shipping for evacuation. 3.7.2 Search and Rescue Carried out in the aftermath of major hazard events, search and rescue operations are highly specialised in nature. In the case of major disasters, the concerned state government seeks the assistance of Central agencies such as the defence forces, the Central paramilitary forces, the NDRF, and fire services. In cases where SAR teams from neighbouring states assist the affected state, the local district/city administration will be responsible for coordinating those teams, respectively. Search and rescue comprises: rescuing victims of road, rail and air accidents, a boat capsize, or floods, and requires immediate medical assistance urban search and rescue, which involves locating, extricating and providing immediate medical assistance to victims trapped in collapsed structures The NDRF will: i. conduct a rapid and comprehensive SAR needs assessment after a disaster or when there is an imminent threat ii. dispatch SAR Teams of NDRF as per an assessment of the situation iii. supervise the deployment of NDRF teams iv. coordinate with the state government/district administration for the deployment and demobilisation of NDRF v. coordinate with MHA/NDMA/MoD/Ministry of Civil Aviation and Railways, respectively, for transportation of teams and equipment, and ‐ ensure that NDRF teams are self sufficient in terms of equipment and accessories for SAR operations in the disaster affected district/state, and make arrangements to receive SAR teams from foreign countries and earmark them to different areas in the district/state 108
Suggestions of NDRF: The details of the assistance which is required to be provided by the State Govt./District administration to the NDRF is mentioned. Following points are recommended for the inclusion:‐ (i) Provide equipment for removal of heavy debris from the accidental site where required, such as cranes, bulldozers, tractors etc. (ii) Provide security to SAR teams of NDRF who are deployed without arms where there are law & order problems, naxalism/terrorism etc. (iii) Provide local guides and interpreters to the NDRF teams. (iv) Provide compressed industrial gases cylinders which are required for operational purpose as well as cooking gas for cooking of food (on payment) being prohibited for transportation in the airlines as well as by road as per law. The CAPF will: i. assist State Government in their search and rescue operation by deploying their personnel, ii. coordinate with MHA/NDMA/MoD/Ministry of Civil Aviation and Railways, respectively for transportation of teams and equipment Ministry of Defence will: i. notify Defence Crisis Management Group (DCMG) and conduct its meeting when MoD is required to respond as second responders which will also be attended by representatives from MHA, NDMA, NDRF, Resident Commissioners for affected States ii. issue instructions for deployment of Armed Forces resources through Chief of Integrated Defence Staff (CISC) which will be coordinated by JS(DM), MHA with JS(G), MoD iii. monitor/review deployment of Armed Forces Resources depending on the developing situation The state government/district administration will: 1) arrange for the local transportation (from the airport/railway station to affected sites) of NDRF teams as well as POL supplies for NDRF’s equipment/vehicles 2) provide access routes for the transportation of NDRF teams to affected sites, repair or reinforce roads and bridges on a temporary basis if need be, or provide emergency detours 3) control traffic to ensure that SAR teams of NDRF and other agencies as well as relief teams reach the affected sites without any delay The DM Division, MHA will: i. coordinate with the IDS, HQ, MOD for deployment of army/air force, including helicopters, for SAR operations
109
ii.
coordinate with the Police Division, MHA/DGs of CAPFs for the deployment of CRPF and ITBP, among others
3.7.3 International Urban Search and Rescue Teams In the aftermath of a disaster, urban search and rescue (USAR) teams from foreign countries can be deployed under specific conditions, as per the choice of the Government of India. As per the policy of Government of India, international assistance is not solicited during natural disasters. However, the following broad points govern international assistance in natural disasters: 1) If the GoI has entered into a bilateral agreement with a country, which includes resource sharing, including USAR teams. Under these agreements, the receiving country will facilitate visas on arrival, reception and deployment of foreign USAR teams 2) under the auspices of the United Nations Office for Coordination of Humanitarian Affairs (UN OCHA) which serves as the secretariat of the International Search and Rescue Advisory Group (INSARAG), coordinating international assistance in the aftermath of a disaster when the humanitarian crisis exceeds the dealing capacity of the affected country. 3) In a case which requires the assistance of foreign USAR teams, the GoI is required to make a request to OCHA. The UN OCHA will dispatch a United Nations Disaster Assistance and Coordination (UNDAC) team at the request of the respective national government or the UN Resident Coordinator in the affected country. The UNDAC team will set up an onsite operations coordination centre (OSOCC) close to the disaster site for the international teams to coordinate with local authorities. The reception and departure centres will be established at the points of entry into the affected country, like airports 4) As per the INSARAG guidelines, whenever foreign USAR teams are deployed in an affected country, irrespective of the mode of request, a reception/departure centre (RDC) and OSOCC will be established to support the local emergency management authority (LEMA). The RDC and OSOCC are established by the UNDAC team 3.7.4 Emergency medical services The GoI will assist the concerned state government/district administration in making available emergency medical services by the NDRF, the defence forces and the MoHFW, among others. These include: i. the teams of NDRF with doctors and paramedics ii. mobile field hospitals and mobile operation theatres/QMRTs facilitated by the MoD iii. ARMVs iv. heli‐ambulances
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specialised medical teams/QMRTs/mobile and field hospitals facilitated by the MoHFW critical medical supplies, including equipment, vaccines and medicines from the MoHFW post‐disaster public health measures such as immunisation, disinfection and sanitation by the MoHFW 1) assessment of the needs of emergency medical relief by the MoHFW 2) coordination with JS (DM), MHA, by the MoHFW for providing Central assistance
3.7.5 Postdisaster relief needs assessment The GoI may be required to supply appropriate, hazard‐specific relief materials to the affected state government. Towards this: the MHA will coordinate with the Relief Commissioner and assess the requirements of relief materials to be provided by the GoI the MHA will coordinate with the NDRF and CAPFs for the provision of relief supplies the MoD will arrange for Indian Air Force planes to be made available for the transportation of relief materials to the affected state from various locations the Railway Board will arrange for railway wagons for the transportation of relief supplies from different parts of the country as per requirements and availability 3.7.6 Restoration of essential services and public infrastructure The following Central ministries, departments and agencies that assist in the restoration of critical services in the affected state: (i) the Power Grid Corporation, Ministry of Power, will provide technical human resources, expertise and equipment for the repair and restoration of power supply infrastructure (ii) the BSNL, or MTNL (in the cities), Ministry of Telecommunication, will provide technical human resources, expertise and equipment, such as temporary telephone exchanges, for the repair and restoration of telecommunication infrastructure (iii) the Airports Authority of India, Ministry of Civil Aviation, will assess the damage to airports, provide equipment and undertake repair for early restoration of airport operations (iv) the MoD will provide bailey bridges for the immediate restoration of roads (v) the National Highways Authority of India will undertake repair, build temporary bridges and access‐ways for the restoration of highway operations (vi) the Ministry of Rural Development will undertake repair of the drinking water supply infrastructure (vii) the NDRF will set up mobile communication facilities at the site so that rescue and relief operations are conducted smoothly
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(viii) DOS has developed INSAT MSS Type‐D satellite phones and WLL VSATs 9vehicle mounted and container based) fly‐away terminals. However, ISRO/DOS will not be in a position to establish the same during the disaster on operational basis. Hence, arrangements need to be made by a suitable agency such as NDRF to stockpile sufficient member of flyaway terminals and INSAT MSS Type‐D satellite phones for deployment during the disaster on requirement basis. (ix) The Ministry of Railways will: undertake the repair of damaged infrastructure for early restoration of railway operations in the affected areas provide wagons for transportation of relief material run special trains for the transportation of disaster affected people, if necessary (x) Other Central ministries/departments will: coordinate with their counterparts in the affected state and assess the extent of Central assistance needed in their respective sectors coordinate with the DM Division, MHA and attend meetings of the NEC deploy emergency response teams/QRTs/personnel/equipment, as per the directions of NEC/NCMC monitor situation on a constant basis identify availability of critical resources, including human resources, material and equipment take appropriate action as per the SOPs for the specific function under the Response Plan provide resources both in terms of men and material for assistance to the concerned state at NEC’s request 3.7.7 Assistance to Foreign Nationals and Embassies The following Central ministries, departments and agencies will provide assistance to foreign nationals and embassies: i. the MHA and MEA will jointly set up an Emergency Information Centre (EIC) to provide information about foreign nationals affected by the disaster ii. the MoHFW will coordinate with the concerned state government as well as the MEA and provide assistance for treatment of injured foreign nationals iii. the MEA will coordinate with the concerned state government and assist in identification and transportation of deceased foreign nationals iv. the MEA will also assist affected foreign nationals in returning to their countries/safe locations 3.7.8 Damage& Loss Assessment The GoI will provide assistance in damage and needs assessment in three stages. It will: i. carry out a Rapid Damage Assessment to provide vital inputs in the Relief Needs Assessmentundertaken by the affected state government/district administration. The MHA and MoD will provide helicopters for aerial surveys, while ISRO/ DoS will provide satellite imagery of affected areas. These inputs will be added to the 112
ii.
iii.
iv.
state government’s field observation data to assess the extent of damage and SAR operations needed provide through the MHA,structural engineers and other relevant experts including environmental, social and economic professionals from reputed institutions to the state government which is required to make a detailed assessment of damages to public and private property, and infrastructure and losses to property, environment, other resources and non‐tangible implications to the communities. These experts will assess the safety of public buildings, develop guidelines for the assessment, repair and retrofitting of damaged public buildings and infrastructure conduct with the state government jointly a damage and needs assessment to ascertain the requirements for recovery and reconstruction. The damage and needs assessment will be carried out only in cases of major disasters needing extensive recovery and reconstruction programmes. The Memorandum for assistance from National Disaster Response Fund will be prepared by the State Government, indicating details of damages and the resources required for immediate restoration.
3.7.9 Coordination Information management The DM Division, MHA, will: coordinate with concerned Central ministries/departments/agencies at the national level on a regular basis coordinate with the state government and make overall assessments of the situation coordinate transportation and deployment of the NDRF, army, navy, air force and CAPFs, including teams and equipment according to the needs of the state government convene meetings of the NEC/CMG, IMG and HLC as the case may be deploy inter‐ministerial teams for assessment of damage/loss in the affected state process the proposal for release of funds from the National Disaster Response Fund The NEOC in the MHA control room will: collect information from Central agencies as well as from the SEOC and DEOC and prepare consolidated situation reports on a daily basic keep all designated authorities/agencies at the national level informed of the situation and provide support to JS (DM) in terms of conveying issues and priorities for the meetings to be conducted at the Central level of the NEC and NCMC, among others The Ministry of Civil Aviation will: (i) provide aircraft for the evacuation of people from affected areas and run special flights if needed (ii) provide cargo planes for transportation of relief material to the affected areas 113
(iii) restore civil aviation operations in the affected areas (iv) provide aircraft for the transportation of personnel from the NDRF, MoD and the Ministry of Health, among others The NEOC, (MHA), is the designated communication hub during emergency response and relief operations. The NEOC will: i. collect information from Central agencies as well as the SEOC and DEOC and prepare consolidated situation reports on a daily basis ii. keep all designated authorities/agencies at the national level informed of the situation iii. provide support to JS (DM) for conducting meeting of NEC/CMG and NCMC etc The NEOC’s brief is to: i. collect all relevant information regarding casualties as well as damage to property and infrastructure, and relay the same to concerned authorities/ agencies ii. collect information on the specific details of Central assistance which state governments/district administration request in course of response and relief operations iii. set up a helpline to provide information about victims to the next of kin, friends and others iv. set up an EIC to maintain and update all major actions taken in managing the disaster event, and release consolidated information to all stakeholders including Media at the national level The JS(DM)/NEOC is authorised to organize media briefings and disseminate information through newspapers, radio and television channels, as well as online social media networks. The information provided by the JS (DM)/NEOC will be the officially authenticated version of the situation. It is the NEOC’s responsibility to maintain all relevant records of disaster response management so that the actions taken by concerned Central government agencies can be studied for improving response and relief efforts in the future. 3.7.10 Disposal of dead bodies The State Government/District authorities shall earmark authorities responsible for disposal of dead bodies in event of mass casualties. The process of identification and handing over to next of kin shall be followed. Mass burial/disposal of bodies may be done as a last resort. Local religious and cultural practices shall be honored while disposing the dead bodies. Guidelines brought out by NDMA in this regard will be followed.Dead bodies of the Foreign Nationals shall be managed/disposed off as per the “Interpol Disaster Victim Identification Guidelines”. 3.7.11 Social protection and security The GoI may be required to provide support to the state government towards maintaining social protection and security in the disaster affected areas. Accordingly:
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a. the Ministry of Women and Child Development will coordinate with the affected state government and set up a monitoring mechanism for the prevention of human trafficking of women/children b. the MHA will provide teams of forensic experts and equipment for DNA fingerprinting of victims in mass casualty cases to facilitate the identification and disposal of dead bodies c. the MoHFW will coordinate with the Central ministries of Defence, Railways, Women and Child Development, Labour (Employment State Insurance Corporation) to mobilize and provide teams comprising psychologists, psychiatrists and sociologists for the treatment of post‐traumatic‐stress disorder and other psycho‐ social ailments.
3.7.12 Financial assistance
The MHA will follow the following procedure to release financial assistance to the affected state government: The memorandum of the state government will be examined to assess the likely requirement of funds as per the items and norms of expenditure under SDRF/NDRF. If a preliminary examination reveals that there are adequate funds in the SDRF with the state for providing relief as per norms, the state will be advised accordingly If a preliminary examination reveals that the state is in need of assistance, an Inter Ministerial Central Team will be deputed to the disaster affected area for an on‐the spot assessment The report of the Central team will be examined by the NEC through its sub‐ committee, which will assess the extent of relief expenditure which can be made available through the NDRF, as per the norms of NDRF and SDRF, and make recommendations for the same The High Level Committee will consider the recommendations of the Sub‐ Committee of NEC and approve the quantum of immediate assistance to be released from the National Disaster Response Fund. 3.7.12 Disaster Response by UN Agencies The UN Disaster Management Team (UNDMT) has been constituted under the UN Resident Coordinator for India in New Delhi to: ensure prompt, effective and concerted country‐level support to GoI’s disaster response in the event of a disaster, at the Central, state and sub‐state levels; coordinate UN assistance to the GoI regarding long‐term recovery, disaster mitigation and preparedness; coordinate and synergise all disaster‐preparedness or response activities, technical advice and material assistance provided by UN agencies and take steps for the optimal utilisation of the said resources UNDMT India, is comprised of 11 UN agencies as members: Food and Agriculture Organisation, International Labour Organisation, United Nations Development Programme, 115
United Nations Educational, Scientific and Cultural Organisation, United Nations Population Fund, United Nations High Commission for Refugees, United Nations Children’s Fund, World Food Programme, World Health Organisation and the Joint UN Programme on HIV/AIDS (UNAIDS). The UNDMT also promotes partnerships with various stakeholders such as the GoI, donor agencies, national and international NGOs, community‐based organisations and communities. Following the cluster approach, one lead agency from UN organisations/ INGOs/NGOs working in respective sectors such as health, water, sanitation, shelter and food will be made overall coordinator for mobilising and providing assistance to the affected state government.
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Individually or collectively, the UNDMT and other UN agencies are required to coordinate with the Disaster Management Division, MHA at the national level for deployment of their resources and for providing assistance to the affected state government.
Functions of the United Nations Disaster Management Team On an on‐going basis, in anticipation of disaster risks and potential emergencies, the UNDMT is required to: 1) compile, evaluate and keep up‐to‐date information about disaster risks and preparedness arrangements in the country, the resources likely to be available for use in an emergency, and the kinds of international assistance likely to be required in particular situations 2) draw up and regularly review a detailed action/preparedness plan for the UN system at country level for a concerted, timely and coherent response to the GoI and affected populations review the implications of known and potential hazards for the development process in the country and: i. co‐ordinate the assistance of the various UN organisations/agencies in relation to risk reduction measures and national disaster preparedness arrangements ii. identify opportunities for collaboration in joint and/or parallel projects in various sectors that can directly or indirectly contribute to risk reduction and preparedness, particularly at the local level 3) act as a focal point for co‐operation between the UN system and r disaster‐related coordination mechanisms at country‐level 4) ensure that appropriate elements of the plan are reflected in the UN Security Plan so that appropriate measures can be invoked under different security phases to protect UN staff and property and also ensure the operational basis of the UNDMT In the event of an emergency or disaster that does not fall within the mandate of given UN organisations, the UNDMT collaborates with the UN Resident Coordinator and OCHA in helping to: 1) mobilise and co‐ordinate international assistance 2) establish a consolidated UN assessment of the requirements for international assistance, with the help of expert evaluations organised by competent agencies 3) coordinate the dissemination of UN assessment results, plan an appeal to OCHA as well as the headquarters of other agencies and local representatives of potential donors and operational organisations 4) co‐ordinate the delivery of assistance by UN agencies and heir resource mobilisation arrange the provision of consistent and coherent operational support and technical assistance to the GoI, possibly including the establishment and operation of an Emergency Information and Co‐ordination Support Unit (On‐Site Operations Co‐ordination Centre) or through assistance to OCHA’s UN Disaster Assessment and Co‐ordination Team (UNDAC) 5) Integrate risk/vulnerability analysis into the interagency planning process at the country level. The process is the vehicle, through which comparative response capabilities are identified, gaps or overlaps avoided, and scarce resources more effectively allocated. This joint effort enhances the likelihood for a timely and effectively response by the system as a whole to any impending future crisis.
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3.8 Emergency Communications Systems 3.8.1 Disaster Communication When disaster strikes, botched communication can cause even more damage than nature’s fury. Also, communication is a major bottleneck in case of any major disaster particularly when the traditional network system is already in forced break down. In the chaos that follows a disaster, rumors and confusion may run rampant. Disaster victims need clear, timely, consistent and accurate information to find help and resources, avoid hazards and to minimize additional injuries or damage. Effective and accurate communication can save lives and property, as well as help ensure public trust and credibility. A dedicated and comprehensive communication framework is the key to deal effectively with all kind of disasters. A national Emergency Communication Plan (NECP) was envisaged in 2002‐2003 to have a better communication set‐up for Disaster Management activities and reliable communication links between decision makers at various levels and operational response teams (National Disaster Response Force in present perspective) at disaster sites. The focus is on near 100% reliability during various emergencies/disasters at optimum costs by using Government as well as other network resources to provide voice, data and video links between district, state and National Emergency Centers. The Phase II of the Plan is under execution and is likely to be completed by 2014‐15. A National Database for Emergency Management (NDEM) is being established at Hyderabad and mirror image at Delhi for emergency management by integrating digital mapping, Geographic Information System (GIS) databases and space technology inputs using GIS as a tool for assisting disaster/ emergency response including Decision Support System. GIS is a computerized information system that is used to input, store, retrieve, manipulate, analyze an output geographically referred data, in the form of digital maps, for decision making in the planning and management of emergency situations. This will provide a dedicated communication and IT support for pro‐active disaster support functions including Early Warning and Forecasting to ensure real time dissemination of timely warning and information to the community ‘at risk’ and the local authorities. We need to provide a reliable, responsive and dedicated communication and IT support for effective disaster management at the National, State and District levels, with optimum redundancy and diversity, coupled with dynamic integration, reconfiguration and management capabilities in a seamless environment. The communication framework should include National Disaster Management Information System (NDMIS) to enable data collected by different nodal agencies to be used with detailed GIS for generating actionable information through Vulnerability Analysis and Risk Analysis and Decision Support System for stakeholders at district /state level. 3.8.2 Operations centres and communication network When a hazard event leads to a disaster situation, the need for an effective communication system assumes the utmost importance, particularly between decision makers at various levels and response teams at the site. Yet, invariably, the communication infrastructure becomes the first casualty of a major hazard event, especially the terrestrial telephone 118
networks, both wired and wireless (GSM/CDMA). That makes the task of emergency response extremely challenging. Establishing a fail‐safe communication system for emergency situations is one of the most critical aspects of disaster preparedness and response. 3.8.2.1 Emergency Operations Centres A network of emergency operations centres (EOCs) linked at the national, state and district level constitutes the nerve centre of this fail‐safe communication system. Its key function is to coordinate and manage information regarding hazard events and disseminate it to the line departments and agencies at various levels. At the stage of early warning, the main objective of the EOC is to ensure efficient collection, assimilation and dissemination of information to issue alerts when a hazard event is likely to occur.
Network of EOCs STATE EOCs
EOCs/CONTROL ROOMS AT DISASTER SITES
DISTRICT EOCs
NEOC
CONTROL ROOM OF EARLY WARNING AGENCIES
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NODAL CENTRAL MINISTRIES/ DEPARTMENTS IN NEW DELHI
is imminent has actually taken place Towards this end, the EOCs receive and process disaster alerts from early warning agencies and other sources, and communicate the same to all designated authorities issue hazard event specific information and instructions to all concerned prepare status reports of emergency operations facilitate coordination among Central ministries/departments/agencies mobilise additional resources during the disaster phase consolidate, analyse and disseminate data regarding casualties, damages and needs assessment submit consolidated reports to all designated authorities
A versatile electronic messaging system 3.8.2.2 National Emergency Operations Centre The National Emergency Operations Centre (NEOC) facilitates real‐time, effective and is located in the premises of the MHA at North Block, coordinated response to a crisis situation New Delhi. At present, it: accelerates information flow handles the requirements of disaster collects and collates information from multiple sources, sifting them for response as well as internal security onward transmission is placed under the administrative control of the JS (Internal Security‐I), MHA, with the provides for simultaneous vertical as well as horizontal flow of information Director (Internal Security‐II) supervising its functioning prevents information loss has six officers of the rank of assistant archives vital information uses commandants and deputy commandants multiple communication tools as well from the central paramilitary forces working as network connectivity, which serves as a standby following the failure of a in shifts as NEOC’s duty officers particular communication tool. To ensure an uninterrupted pace of work, the NEOC is equipped with state‐of‐the art facilities. These include: an Integrated Operations Room where all response operations are planned, managed and executed. It is equipped with LAN networked computers, servers, digitised maps and display systems a multi‐site teleconferencing and video‐conferencing facility a coordination area with sufficient space for ministries/departments/agencies supporting emergency functions to have their workstations communications facilitiessuch asradio communication on UHF, VHF and HF radio frequencies, in addition to terrestrial and satellite based communications a decision support systemforanalysing the constant flow of information received from other EOCs, state governments and agencies in order to provide support to decision makers in the affected area an electronic messaging system (EMS) forreceiving reports/information about disaster situations from concerned ministries/departments/agencies and state governments, and, thereafter, issuing alert messages to all concerned documentation, photocopying, scanning and faxing provisions Data/Information Management System 3.8.2.3 A system of uninterrupted functioning The NEOC is connected to several telecommunication networks to ensure a fail‐safe chain of communication in the worst of scenarios: the primary ISDN terrestrial telephone network connects the entire country and is operated by Bharat Sanchar Nigam Limited (BSNL)/Mahanagar Sanchar Nigam Limited (MTNL) the police wireless system, as well as their satellite‐based network POLNET, is used to transmit voice and data. With its hub in Delhi, POLNET operates through 961 very small aperture terminals (VSAT), of which 41 are installed in state/union territory
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capitals; 811 in district headquarters of each state/union territory and locations of CAPFs, MHA, NCRB and CPOs; and, 109 in BSF and ITBP locations. From the district headquarters, POLNET’s connectivity extends to police stations through the local police radio network, which can be accessed by the District Magistrate at any location as well as by the Sub‐divisional Magistrate DMS‐VPN, satellite based link established by ISRO is designed to inter‐connect National Emergency Operation Centre (NEOC) with key decision making centres, data/information providing centres and State EOCs. DMS‐VPN can be brought into use in a disaster situation to transmit audio, video and data through the same network simultaneously. The NEOC will use the DMS‐VPN links between National Emergency Operation Centre, early warning agencies and various State EOCs in the aftermath of a disaster. This network needs to be extended to District EOCs. Down the line connectivity need to be planned using suitable wireless technology for voice and low‐speed data connectivity. Portable satellite phones such as INSAT MSS Type‐ D terminals will provide additional backup through satellite links between disaster sites and various EOCs. the nationwide VSAT‐based satellite communication system, NICNET has been set up by the National Informatics Centre (NIC). It has gateway nodes at 53 Central ministries/departments, 35 state/union territory secretariats and 603 district collectorates to service internet communication technology applications. NICNET can be used during emergencies to transmit audio, video and data simultaneously ISRO/DoS has developed WLL VSATs fly‐away terminals. These systems could be integrated with CDMA (piconet) technology and other suitable wireless technology to enable communication links to 2‐5 km radius. The fly‐away terminals require minimum set‐up time and easily installed and operated, and are designed to provide additional back‐up through DMS‐VPN in crisis situations. the NEOC meets interface requirements of all these varied networks for inter‐ operation. It is supported by a: first back‐up provided by POLNET second back‐up provided by DMS‐VPN third back‐up provided by NICNET
Portable mobile unit as a field Emergency Operations Centre One mobile EOC for a disaster site, and six transportable communication sets for search and rescue teams of NDRF Battalions have been procured for providing communication cover at the disaster site. Each mobile unit is equipped with the following Communication Equipment:‐
One transportable (Flyaway) VSAT with IP phone Two Satellite phones (INMARSAT BGAN/INSAT) One VHF portable radio (25 W) 20 walkie talkie type VHF sets One laptop with encoding/streaming card One genset 2 KVA Spare 12V 75AH battery for portable VHF set
3.8.2.4 A backup for National Emergency Operations Centre 121
An alternate NEOC is in the process of being established at the NDMA. Proposed as a mirror image of the NEOC at the MHA, this body will work as its back‐up and handle any eventuality, if, for some reason, the NEOC at the MHA becomes non‐operational. A prototype of the NEOC equipped with the basic communication system for training purposes is also underway at the NIDM, New Delhi. It has the possibility of providing a second back‐up to the NEOC if the situation so warrants. 3.8.2.5 Links with early warning agencies, ministries and responding agencies Through the general ISDN terrestrial telephone network, the NEOC is connected to the: CWC IMD INCOIS GSI SASE NDMA control room state EOCs Integrated Defence Service, MoD Through its links with the DCPW network, the NEOC also has access to the police wireless network throughout the country.Through satellite based DMS‐VPN, NEOC is connected to CWC, IMD, INCOIS, GSI, MHA Control room, NRSC, Prime Minister’s Office and Residence, Cabinet Secretariat and 20 State EOCs. IMD IDS, MOD OPS Central Control Control Room (24 Ministries / 7) CWC NDMA/NDRF Control Control Room / NEOC, MHA (24 x 7) INCOIS State EOCs Control Control GSI Mobile EOC Control SASE (Disaster ) 122
NEOC
SEOC
DEOC
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During emergency response phase to collect information from early warning agencies and issue alerts/ warnings to collect disaster related information from SEOCs/DEOCs to provide decision support to DM Division, MHA to operate EIC for dissemination of information d di b i fi
During emergency response phase to collect disaster related information from DEOCs and communicate it to NEOC and others to provide decision support to Secretary, DM/SEC to operate EIC for dissemination of information
During emergency response phase To collect disaster related information from the affected areas and provide to SEOC/NEOC To provide Decision Support Service to DDMA To operate EIC for dissemination of information and media briefing
3.8.2.6 Functions of National Emergency Operations Centre In the preparedness phase the NEOC will: maintain and update contact details, maps, response plans and an inventory of resources keep in full working condition all hardware, software systems and equipment such as telephones, fax, servers and computers monitor the situation regarding natural and human induced disasters in the region and country compile reports and archive information regarding past disasters assist the Disaster Management Division, MHA, in various preparedness measures In the emergency phase the NEOC will: generate an Alert or Warning as soon as it receives information about an imminent hazard event or occurrence to all designated authorities in the GoI, through telephone, SMS, e‐fax and e‐mail messaging services. Alerts to the PMO/Cabinet Secretariat will be sent only when the urgency of the situation demands it. Further, information that is sensitive from a security angle, will not be sent through the electronic messaging system confirm the exact position regarding an impending, imminent or actual disaster situation from the officially designated agency before it issues Alert or Warning messages, since it gets information from various sources work as a decision support system by collecting information from various sources, analysing it and presenting it in a manner that it facilitates decision makers regularly collect all relevant information and apprise designated authorities through a Daily Situation Report and any other reports as may be required monitor the situation and facilitate the mobilisation of resources from Central departments/agencies for assistance to the affected state/union territory 3.8.3 State Emergency Operations Centre Each state is required to: set up a State Emergency Operations Centre provide adequate human resources to manage the SEOC arrange for the training of SEOC staff develop a Standard Operating Procedures (SOP) Protocol for the SEOC’s activation during an imminent hazard event and after its occurrence In the preparedness phase the SEOC will: act with a core staff and assist the SEC/SDMA in disaster preparedness maintain the state and district disaster management plans, government orders, maps (including GIS maps wherever available), and an inventory of resources and important addresses receive reports from all departments and agencies, including DDMAs, regarding preparedness measures taken for dealing with natural or human induced hazard events
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compile damage assessment reports for each disaster on an annual basis, and maintain all relevant records of disasters report to Secretary (DM)/Relief Commissioner, developments related to natural and human induced hazard events keep all its equipment in working order
In the emergency phase, the SEOC will: get activated upon receiving information from the NEOC/DEOC or from an early warning agency or any other reliable source issue an Alert/Warning to all designated authorities at the state and district level and also make public announcements through the print media, radio and television networks send a First Information Report to NEOC, MHA, and, thereafter, a Daily Situation Report until the situation normalises collect all relevant information and apprise the designated decision making authorities of the latest developments facilitate the mobilisation and deployment of resources from various departments/agencies of the GoI, the state government, UN agencies and NGOs collect information from all concerned departments/agencies regarding the action taken in response to the situation and submit a report to the DDMA/District Magistrate/Additional District Magistrate maintain regular contact with the nominated officials of the participating agencies and update the Secretary (DM)/Relief Commissioner about action taken assist the Secretary (DM)/Relief Commissioner in convening coordination meetings of all departments /agencies, and monitor response operations 3.8.4 Functions of the District Emergency Operations Centre The DDMA/district administration is required to: set up a District Emergency Operations Centre (DEOC) provide adequate human resources to manage the DEOC arrange for the training of staff develop a Standard Operating Procedures (SOP) Protocol for the activation of the DEOC during the phases of an imminent hazard event and after its occurrence In the preparedness phase, the DEOC will: act with a core staff and assist DDMA in disaster preparedness maintain the District Disaster Management Plan, government orders, maps, and inventory of resources and important addresses receive reports from all concerned departments and agencies regarding preparedness measures taken for dealing with natural and human induced hazard events compile damage assessment reports on an annual basis, and maintain all relevant records of disasters report to the District Magistrate/Additional District Magistrate all developments related to natural and human induced hazard events 125
maintain all its equipment and ensure that they are in working order at the DEOC In the emergency phase, the DEOC will: receive information from the SEOC/NEOC or from designated early warning agencies or field functionaries from sub‐divisions, blocks, tehsils, or any other reliable source, and transmit them to all concerned field offices and line departments issue alert/ warning to all designated authorities at the district level monitor disaster events, assess magnitude and impact, and seek the assistance of agencies such as the defence forces, fire services and leading NGOs send a First Information Report to the SEOC and NEOC, MHA and thereafter a Daily Situation Report on a continuous basis till situation normalises collect all relevant information and apprise the designated decision making authorities of latest developments maintain maps, inventory of resources, records and documents related to the response measures being undertaken facilitate the mobilisation and deployment of resources from various agencies collect information from all participating departments/agencies regarding the response actions taken and submit a report to the DDMA/District Magistrate/ Additional District Magistrate maintain regular contact with the nominated officials of participating agencies, updating the District Magistrate/Additional District Magistrate about the action taken or being taken assist the District Magistrate/Additional District Magistrate in convening meetings of all departments /agencies, and monitor response operations Preliminary Report The preliminary report will briefly summarise:
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the severity of the disaster actions being taken locally local coping capacities(including locally available resources) immediate priorities for relief assistance required and approximate quantities for the same critical requirements most appropriate logistical means for delivering relief kind of assistance required from GoI and state government possible future developments including new risks, if any.
Daily Situation Report and detailed report The Daily Situation Report on rainfall and flood follows a standardised format prepared by the MHA and is required to be sent at 1400 hours daily throughout the monsoon period to the NEOC at fax no. 23093750 and email at
[email protected] the form is at Annexure –I&II. The Daily Situation Report on earthquakes, cyclones, landslides and tsunami follows a standardised format prepared by the MHA. It is required to be sent to the NEOC on a six hourly basis during the first three days of an earthquake, landslide or tsunami. In case of cyclone, it will be sent three hourly basis till the system has cyclone intensity. It will be issued six/12 hourly in depression stage after landfall upto 3 days and thereafter, it will be sent once daily at 1400 hours until the situation becomes normal, at fax no. 23093750 and email at
[email protected] Once the situation has stabilised, the state government is required to prepare and submit a detailed report on the disaster to the JS (DM), MHA, giving details of the action taken and response of the state government/district administration to the disaster in the standard format.
3.8.5 Information management through the Emergency Information Centre Since information emanating from multiple sources has the potential of creating confusion and damaging the morale of the people, the DM Division, MHA, will set up an EIC at the NEOC. Put in charge of an officer not below the rank of Director, the EIC will: be responsible for collecting and disseminating information about a natural disaster to the media and the general public be equipped with dedicated telephone lines, computers, work stations and related display systems to fulfill its task run helplines managed by officers from the NDRF/NIDM/CAPFs 3.8.5.1 Functions of the Emergency Information Centre Working as the sole source of dissemination of all disaster related information to mass media networks, UN agencies as well as NGOs, the EIC is required to: use all media channels to disseminate information, from newspapers, radio and television networks to online social media such as Facebook, twitter and linkedIn to reach out to a larger audience use radio and television networks as well as webcasts to communicate immediate warnings to the general public issue bulk SMS message through mobile service providers to reach out to large sections of people in a short duration 3.8.5.2 Action response through media briefings The EIC will: organise media briefings and press conferences which will be presided over by the Union Home Minister, Minister of State for Home, Home Secretary, Secretary (BM) or any other senior official designated by the GoI organise press conferences and media briefings on a daily basis, and, if necessary, twice or thrice a day 127
prepare press releases/bulletins and, after their approval by the JS (DM), release them to the Press at regular intervals, including the print media, radio and television networks
3.8.5.3 Action response through help lines The EIC will: operate a helpline to provide information about disaster‐related deaths and injuries collect all relevant information related to deaths and, injuries, and the provision of relief and disaster assistance in a prescribed format facilitating easy retrieval and action communicate information about foreign nationals to the respective embassies provide information about preparedness measures and the precautions to be taken by families and the overall community when faced with an imminent hazard event provide important phone numbers in the GoI and state government provide information about functional road/rail/air routes for the movement of traffic and relief supplies provide information about the physical condition of the disaster affected area and the official measures being taken provide information about facilities for victims and the, relief being provided, through the print media, radio and television networks and internet Only an authorised officer not below the rank of a Director will release disaster‐related information to the general public directly. Further, for documentation purposes the EIC is required to create and maintain detailed records of emergency response management in hard as well as soft copies. 3.8.6 Incident Response System 3.8.6.1 Incident Response System (IRS) Evolution of IRS: Though India has been successfully managing disasters in the past, there are still a number of improvements possible which need to be effected, especially in the matter of decision making, coordination of logistic, actions and monitoring the situation. The response today has to be far more comprehensive, effective, swift and well planned based on a well conceived response mechanism. The Incident Command System primarily developed for the management of forest‐fires in the United States which was later adapted as a common response coordination system for other disasters as well by the Federal Emergency Management Organization, was studies and a customised versions suiting to Indian conditions were evolved as Incident Response System. A national guidelines on IRS has been developed by NDMA. 3.8.6.2 Definition and Context: The Incident Response System (IRS) is an effective mechanism for reducing the scope for ad‐hoc measures in response. It incorporates all the tasks that may be performed during DM irrespective of their level of complexity. It envisages a composite team with various Sections to attend to all the possible response requirements. The IRS identifies and designates officers to perform various duties and get them trained in their respective roles. If IRS is put in place and stakeholders trained and made aware of their roles, it will greatly 128
help in reducing chaos and confusion during the response phase. 3.8.6.3 IRS organisation The IRS organisation functions through Incident Response Teams (IRTs) in the field. In line with our administrative structure and DM Act 2005, Responsible Officers (ROs) have been designated at the State and District level as overall in charge of the incident response management. The RO may however delegate responsibilities to the Incident Commander (IC), who in turn will manage the incident through IRTs. The IRTs will be pre‐designated at all levels; State, District, Sub‐Division and Tehsil/Block. On receipt of Early Warning, the RO will activate them. In case a disaster occurs without any warning, the local IRT will respond and contact RO for further support, if required. A Nodal Officer (NO) has to be designated for proper coordination between the District, State and National level in activating air support for response. Apart from the RO and Nodal Officer (NO), the IRS has two main components; a) Command Staff and b) General Staff. The structure is shown in the
following figure: Figure: IRS Organization 3.9 International Assistance 3.9.1 Receiving foreign assistance As a matter of policy, the GoI does not issue any appeal for foreign assistance in the wake of a disaster. However, if the government of another country voluntarily offers assistance as a goodwill gesture in solidarity with the disaster victims, the GoI may accept the offer. UN agencies and international NGOs already operating in the country at the time of the disaster event will be allowed to provide humanitarian assistance to people in the affected area in coordination with the concerned Central ministries/departments and the state government without seeking GoI’s prior approval. 3.9.2 Reviewing foreign assistance The MHA is required to coordinate with the MEA which is primarily responsible for reviewing foreign offers of assistance and channelizing the same. The JS (DM), MHA, and JS (Coordination), MEA, will be designated for receiving foreign assistance and the state government will coordinate with them. 129
In consultation with the concerned state government, the MHA will make an assessment of the response requirements that could be fulfilled by foreign teams. The offer of foreign assistance could be in the following areas: USAR operations specialised emergency equipment medical teams critical medical equipment medicines and vaccines technical experts Assessing requirements of foreign assistance While making an assessment of the requirements of foreign assistance, certain factors should be kept in mind:
prioritisation of needs non‐inclusion of highly perishable items respect for local cultural practices and sensitivities
3.9.3 Framework of acceptance There are certain parameters within which the GoI will consider foreign offers of assistance in disaster response, namely that: such offers will be accepted only from those countries with which India maintains diplomatic relations if the GoI is a signatory to a bilateral or multilateral agreement with a country offering assistance in disaster response, the proffered assistance will be allowed under the provisions of agreements and prevailing regulations as applicable. Any violation of the provisions of these agreements will result in a termination of foreign assistance by the GoI the International Disaster Response Laws, (IDRL) Rules and Principles Programme, guidelines of the IFRC on international humanitarian assistance will be the guiding factor in facilitating external assistance any country which intends to bring military resources as part of its disaster response assistance will obtain prior approval of the MoD. The MEA will forward such proposals to the Joint Secretary (G), MoD, for concurrence before agreeing to receive such assistance external assistance will be conducted in a responsible and coordinated manner to minimise its impact on local resources as well as ensure good quality and accountability standards while rendering on‐ground assistance to the affected state government, all national and international NGOs will function under the overall supervision and guidance of the state/district authorities 130
3.9.4 Multilateral Assistance In the case of an offer of assistance from UN agencies: their offer will be accepted subject to the GoI’s approval. The MEA and the MHA will take a decision based on factors such as the appropriateness of the offer, among others the concerned UN agencies will coordinate with the respective ministries handling specific areas of assistance offered for GoI’s approval upon accepting the offer of assistance, the GoI will issue directions to the respective state government to coordinate with the concerned UN agencies any intention on the part of the UN agencies to conduct an individual or joint assessment of the situation will require the permission of the GoI and the concerned state government Any financial assistance offered by UN financial institutions involving foreign exchange will require the approval of the Department of Economic Affairs, GoI 3.9.5 Bilateral Assistance Any offer of assistance by a foreign country on a bilateral basis requires: the GoI’s acceptance/approval before it can be channelised to the affected state/district that the embassy of the concerned country coordinate with the MEA and the MHA for routing USAR teams, medical teams and technical experts that the concerned ministries and state government take care of local facilitation and transportation of the foreign teams, ensuring that they conform to regulations that the Resident Commissioner of the concerned state government coordinate and make a deployment plan for the foreign teams/resources in order to prevent any delays 3.9.6 Logistics of coordination Clear cut procedures have been laid down to facilitate and expedite the entry of foreign teams/personnel/resources and ensure their effective assistance: the MEA, in consultation with the MoD and MHA, will decide on their point of entry – airport, seaport, land crossing point or military base there will be a single point expeditious clearance at the point of entry of foreign personnel/teams/resources. The MHA will set up a registration centre comprising representatives from Customs, the Bureau of Immigration and MEA to expedite visa/custom/security clearances the registration centre will maintain a detailed record of the type of assistance entering the country, including personnel, goods and supplies local costs of providing assistance will be borne by the concerned foreign country the GoI/state government will provide security to the foreign teams/personnel on Indian soil but will not be liable for any loss/damage suffered by them while providing assistance in case of violations of any rules/regulations or terms and conditions of bilateral/multilateral agreements, the GoI will terminate such assistance.
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on completion of the disaster response phase or assigned responsibilities, the GoI, in coordination with the concerned state government, will terminate international assistance the concerned state government will monitor and evaluate the assistance received from foreign countries/international organisations and submit a report on the same to the MHA and the MEA
On their part, the countries of the respective teams providing disaster assistance are required to: declare that the teams/personnel carry no contraband items or fire arms declare goods and equipment which might be re‐exported within a certain period guarantee the quality and safety quotient of relief supplies including food, medicines and consumables declare plants and animals which are part of disaster assistance and may carry infecting organisms, requiring quarantine abide by Indian regulations for the re‐export of goods and equipment to the country of origin Facilitating entry and departure At the time of entry, the:
normal procedure for granting visa, Customs and other security clearance will be waived; the Bureau of Immigration will provide for immigration checks and issuance on arrival visas At the time of departure, the:
immigration and custom clearance will be given from a single point at the port of departure the Customs Department, Bureau of Immigration and Ministry of Health and Family Welfare will set up desks to expedite clearance to departing teams from a single point
3.10 India’s disaster response assistance to foreign countries The GoI may voluntarily offer response assistance to a foreign country in the grip of a disaster situation. In such an instance, MHA will coordinate with the MEA and MoD to proffer and channelize its assistance. 3.10.1 Modalities of assistance The modalities for providing such assistance are as follows: the offer of disaster response assistance will be extended to a foreign country voluntarily in the interests of international solidarity
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the MEA will be primarily responsible for deciding on the offer to be made on GoI’s behalf, the approvals to be obtained from the concerned foreign country and routing such assistance to it the MEA will coordinate with the respective Central ministries/departments/agencies. The JS (Coordination), MEA, in consultation with the JS (DM), MHA, and JS (G), MoD, will be the designated focal point of this exercise if the GoI is a signatory to a bilateral or multilateral agreement with a country it is offering assistance to, the said assistance will be provided in compliance with the provisions of the agreements and prevailing regulations as applicable 3.10.2 Type of assistance The assistance offered by the GoI could be in the following areas: USAR teams technical specialists specialised resources essential supplies medicines and vaccines 3.10.3 Logistics of coordination To facilitate the departure of Indian teams/personnel/resources and expedite the process, the: MEA, in consultation with the MoD, MHA, Ministry of Civil Aviation and Ministry of Shipping, among others, will decide on the transportation mode and departure points ‐‐ airport, seaport, land crossing point or military base MEA will issue passports to all outgoing personnel within 24 hours, on a priority basis MHA will set up a special desk comprising representatives from Customs, Bureau of Immigration and MEA to facilitate immigration/customs/security clearances. The special desk will maintain a detailed record of the type of assistance being offered MEA will coordinate with the concerned foreign embassy for issuing visas to outgoing personnel or facilitating visas on arrival. The ministry will also facilitate clearance of equipment and relief material from the concerned foreign country when military resources form part of the GoI’s disaster assistance, the MEA will submit a request the JS (G), MoD, for concurrence the local costs of providing assistance to the concerned foreign country will be borne by the GoI through the Indian embassy or High Commission, respectively, and reimbursed by the MHA. Any loss/damage suffered by Indian teams in the course of providing assistance will be compensated as per GoI rules
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Facilitating departure and entry: At the time of departure:
the Customs authorities will waive customs duties on relief items and equipment being exported for providing assistance to a disaster hit foreign country the Ministry of Health and Family Welfare will provide requisite immunisation to personnel/search and rescue teams at the port of departure At the time of return: the Immigration and Customs clearance will be given from a single point at the port of entry the department of Customs, Bureau of Immigration and Ministry of Health and Family Welfare will set up desks to issue the requisite clearances to returning personnel/teams on completion of the disaster response phase or completion of assigned responsibilities, the Indian Embassy/High Commission, in consultation with the assistance receiving country, will facilitate departure of personnel/teams from foreign soil
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Arrival Point at entry point
Material
‐Medical ‐Shelter & Construction ‐Equipment ‐Telecom & Power ‐Donation F d
Manpower ‐ Medical Assistance Teams ‐ Search and Rescue Teams
Dedicated desks of Dedicated desk of customs BUREAU OF IMMIGRATION for customs clearance for immigration/visa clearance, ID/Passport Card Checking MoHFW desk for Quarantine Document checking Assembly Point Information and briefing The resources are re‐grouped according to the needs of the disaster affected States/districts Point of Departure of manpower and material Disaster affected States/districts 3.11 Plan for Specific Activities of Disaster Response 3.11.1 Response Plan for Early Warning Dissemination Lead agency: Ministry of Home Affairs Support agencies: Indian Meteorological Department Central Water Commission Indian National Centre for Ocean Information Services Snow and Avalanche Study Establishment Geological Survey of India Border Roads Organisation Ministry of Information and Broadcasting National Disaster Management Authority
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National Disaster Response Force Objective: To disseminate early warning signals to the concerned state government and district administration and the public at large in the areas likely to be affected by a disaster so as to reduce loss of life and property. The GoI has set up early warning systems for different disasters so that the concerned administrative machinery can initiate appropriate actions to minimise loss of life and property. The early warning system is in the nature of a trigger mechanism which spontaneously sets the administrative machinery into motion for a quick response. As per this SOP, as soon as the concerned national, state and district authorities receive signals of an impending disaster they would immediately activate the administrative machinery for response and mitigation without loss of crucial time. Preparedness and response measures Preparedness: develop checklists/operational manuals for the functioning NEOC, MHA of EOC/Control Room prepare and update on a quarterly basis the telephone directory containing telephone, cell and fax numbers as well as the emails of all agencies/authorities set up a communication system with the nodal early warning agencies through phone, fax and email develop a template of early warning messages for specific hazards in a simple language, easy to understand and act upon set up/update the instant messaging system develop a protocol for the dissemination of Alert/Warning for specific hazards to the concerned state/district develop a protocol for dissemination of information to the print media and TV and radio networks train EOC staff and conduct simulation drills/mock exercises develop a back‐up/redundancies for transmission of early warning information collect information on early warnings from designated Response nodal agencies. These warnings of impending, imminent or actual disaster situations may reach the NEOC, MHA, from various sources in a number of ways. The NEOC, MHA will confirm the exact position in this regard from the nodal officers of official sources/agencies before issuing Alert messages develop Watch, Alerts and Warning messages as the case may be according to the early warning inputs obtain approval of JS (DM) or an authorised official over telephone or personally for the dissemination of early 136
Preparedness: Nodal early warning agencies
Response
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warning messages to all concerned inform the concerned state government, SEOC, district administration, DEOC and Central ministries and departments about the impending disaster situation ensure full activation of SEOC and DEOC as soon as the Watch/Alerts/Warning are issued by the NEOC to the SEOC, DEOC and other designated authorities communicate with state/district/sub‐district level officials for activating the administrative machinery flash early warning messages (Alert/Watch/Warning) on all TV and radio networks to alert the community likely to be affected. The warning messages should be in simple and local languages easily understandable to the people of the area obtain updated scientific information from the early warning agencies and notify all the line departments display essential elements of Warning/Alert by uploading messages on the MHA’s website and update on a regular basis follow up and issue subsequent Warnings/de‐warning in order to keep the people informed of the latest situation identify authorities in the concerned state/district for providing early warning messages directly set up adequate facilities for transmitting early warning messages to Central/state and district authorities develop a protocol for the dissemination of Alerts/Warning for specific hazards to Central agencies, the concerned state/district develop a protocol for the dissemination of information to all television and radio networks as well as the print media water level and discharge measuring sensors/ equipments and real time data transmission system located at remote hydrological observation and flood forecasting sites need regular inspections during monsoon period for which inspection vehicles may be essentially provided. inform the Secretary (DM)/Relief Commissioner of the concerned state and District Magistrate about the early warning signal and impending disaster inform the JS (DM)/NEOC/MHA about the early warning signal and impending disaster send updates of the situation to all designated authorities at the Centre, state and district administration level from time to time
Response: SEOC, SDMA, state government, District Magistrate/DDMA
inform the community likely to be affected by the disaster through a warning system issue early warning in respect of a disaster at state and district levels through the designated/authorised officer to avoid miscommunication disseminate early warning messages to people in the area likely to be affected ‐‐ through alarms (in case of a fire), sirens (in case of an industrial disaster), signaling through flags (in case of cyclones, floods and landslides), and public address systems flash warning messages on all television and radio networks to communicate to the community likely to be affected. The warning messages should be couched simply in the local language so that it is easily understandable to the people living in the area display essential elements of Warning/Alert by uploading messages on the state government website Hazardspecific early warning dissemination Floods the CWC will monitor water levels of major river basins, dams/reservoirs and issue bulletins on rising water levels, breaches in embankments and the likely inundation the CWC will monitor the flood situation on a round‐the‐ clock basis, issue daily bulletins on flood forecasts and pass on critical information about an impending flood to the NEOC/MHASEOC/DEOC on a daily basis the IMD will issue weather bulletins to the designated authorities in the Central and state government based on the forecasts of the CWC and IMD, the NEOC/MHA will be the sole authority responsible for issuing the following Watch, Alert and Warning messages to the SEOC, DEOC, state and district level designated authorities Category IV: Low floods (water level between Warning level and danger mark) Category III: Moderate floods (water level below 0.50m less than the Highest Flood Level (HFL) and above the danger mark) Category II: High floods (water level within 0.50m of the HFL) Category I: Unprecedented floods (water level equal and above the HFL
the CWC will transmit flood information through television and radio networks as well as local newspapers and through regular posts on its website the CWC will convey flood information to the concerned administrative and engineering authorities of the 138
Tsunami warning dissemination
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state/Central governments, including the ministries of Railways and Defence connected with flood protection and district authorities by special wireless/telephone/fax/email the Tsunami Early Warning Centre (TEWC) of INCOIS, will: • continuously monitor the situation to detect any tsunami on the east and west coasts • analyse and generate tsunami bulletins on the basis of monitoring systems and decision support system • disseminate to the designated concerned authorities for action based on the inputs from INCOIS, the NEOC/MHA will issue a tsunami Warning, Alert or Watch as the case may be the TEWC will issue the following bulletins for a particular region of the coast based on the earthquake parameters, available warning time (i.e. time taken by the tsunami wave to reach the particular coast) and expected run‐up from pre‐ run model scenarios: • tsunami Warning bulletin to the Ministry of Earth Sciences, NEOC/MHA and the public • tsunami Alert bulletin to MOES, MHA and the public • tsunami Watch bulletin to MOES and MHA • ‘Cancellation’ bulletin to all concerned which cancels all previously issued warning message bulletins if the real time doesn’t show any significant water level changes the TEWC will issuewarning messagestofar source regions only after confirmation of a tsunami being triggered based on real‐time water‐level observations and correction of scenarios. This will reduce possibility of false warnings the warning criteria are based on the premise that coastal areas falling within 60 minutes travel time from an earthquake source capable of triggering a tsunami need to be warned based solely on earthquake information, since enough time is not available for confirmation of water levels from bottom pressure recorders (BPRs)and tide gauges coastal areas falling outside the 60‐minute travel time from an earthquake source capable of triggering a tsunami are put under a Watch status and upgraded to a Warning only upon confirmation of the water level data. For instance, if an earthquake with the potential to trigger a tsunami occurs in the coast of northern Indonesia, parts of the Andaman and Nicobar Islands falling within 60 minutes travel time of a tsunami wave will be put under a Warning status other areas will be put under a Watch status which will be upgraded to a Warning only if the BPRs or tide gauges reveal a significant change in water levels
Cyclone warning dissemination
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in cases where a tsunami Warning/Alert/Watch is issued, the TEWC will continue to monitor the tsunami activity through tide gauge water level observations and other complementary observations such as through oceanographic monitoring systems. If observations indicate that the tsunami activity has decreased and no more damaging tsunami waves are expected, then the TEWC updates the status and issues the tsunami All Clear bulletin to respective coastal regions the IMD’s Cyclone Warning Division at New Delhi will coordinate on the matter of issuing cyclone warning bulletins at National Level. the cyclone warning division of IMD will issue cyclone warning bulletins to National level Disaster Management agencies and to the Chief Secretaries of Coastal States. It will also issue to All India Radio and Doordarshan for broadcast/ telecast in different languages, including through the DTH based Disaster Warning Dissemination Systems (DWDS). cyclone Alert and clear stage of intensification: 6 hourly warning bulletinsincluding possible track: 3 days in advance with 3‐6 hourly warning bulletins Specific track, intensity, landfall location and associated coastal lead time hazard impact (storm surge; wind damage; inundation mapping): 2 days in advance with 3‐6 hourly warning bulletins along with de‐warning of safe areas updated track, intensity, rainfall, landfall location and associated coastal lead time hazard impact (storm surge; wind damage; inundation mapping): 24 hours in advance with 1‐3 hourly warning bulletins specific updates on intensity, landfall and associated coastal lead time hazard impact (storm surge; wind damage; inundation mapping): 12 hours in advance with hourly warning bulletins, and de‐warning of additional safe areas if any location‐specific intense rainfall, wind, coastal river discharge inundation (including wave and tidal effects) and hazard impact: Landfall and post‐landfall up to 24 hours later with 1‐3 hourly warning bulletins location‐specific forecast for response and relief and rehabilitation efforts: post‐disaster (2‐7 days) with 12 hourly warning bulletins, including de‐warning of the disaster Kolkata Coastal districts of West Bengal and
Andaman & Nicobar Islands Bhubaneswar Visakhapatnam Chennai
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Coastal districts of Orissa Coastal districts of Andhra Pradesh Coastal districts of Tamil Nadu, Pondicherry, Kerala, Karnataka and Lakshadweep Mumbai Coastal districts of Maharashtra and Goa Ahmadabad Coastal districts of Gujarat states cyclone warnings will also be provided through three Area Cyclone Warning Centres (ACWCs), located in Kolkata, Mumbai and Chennai, as well as three Cyclone Warning Centres (CWCs) situated in Bhubaneswar, Vishakhapatnam and Ahmadabad respectively. These Centres will have distinct area‐wise responsibilities covering both the east and west coasts of India and the oceanic areas of the Bay of Bengal and the Arabian Sea, including the Andaman and Nicobar Islands and Lakshadweep: the IMD will also inform all designated authorities/agencies, including Chief Secretary of the concerned state, the concerned state NDRF over telephone/mobile/fax/email/SMS about the location movement and intensity of the storm and the areas expected to experience severe weather based on the inputs from IMD, the NEOC/MHA will notify all designated authorities at the Centre, the concerned state government and district administration likely to be impacted during the Alert stage one advisory every six hours will be issued. However, in the case of a sudden change in intensity and path, special bulletins will be issued at any time as per the urgency. When the cyclone is close to the coast, advisories will be issued at more frequent intervals. The following information will be included in a cyclone advisory: • advisory heading (date, time, name or identification of the cyclone, name of the forecasting office and type of the message) • location (bearing and distance of the centre of the cyclone from some important city in the area where it is expected to make its landfall), present direction, movement and speed • indication of the cyclone’s current intensity in terms of wind speed and central pressure • Past movement (speed and direction) during past 12 hours. • forecast movement of the centre and intensity
landfall point and landfall time (if close to the coast, from warning stage onwards) • forecast weather – that is, maximum wind speed, heavy rainfall areas, height of the storm surge and areas likely to be affected • expected damage action suggested • advisory for evacuation • cautionary advices to the ports and small craft • advice to fishermen • time and source of next advisory bulletin in case the cyclone does not occur as predicted, the IMD will issue a de‐warning. After this de‐warning the following action will be taken: • the NEOC/MHA will inform the concerned state government/district administration • the NEOC/MHA will inform the NDRF and Integrated Defence Staff, among others, for the demobilisation of teams/personnel already positioned in advance in anticipation of the cyclone • the IMD will inform all concerned agencies, including port authorities, civil aviation authorities, and maritime agencies about the de‐warning •
Landslide warning dissemination 142
the GSI will monitor landslides for identified sites and notify all the responsible agencies for response and mitigation at the state and Centre, including the NEOC/MHA earthquakes may trigger landslides and, therefore, the IMD will communicate the occurrence of an earthquake’s magnitude and epicentre to the GSI for initial assessment of earthquake‐induced landslide heavy rainfall can also cause landslides in hilly areas. In this case IMD will issue heavy rainfall warning to GSI and GSI will in turn issue landslide warning, if required. in case of a sudden occurrence of landslide, the BRO, state PWD and Directorate‐General of Geology and Mines (DGM) as well as the Forest Department will notify the MHA and GSI along with preliminary information on location, magnitude and damage caused on receipt of information of a landslide / impending landslide, the NEOC/MHA will immediately inform the SEOC/DEOC the NEOC/MHA will ascertain the location, magnitude and impact of the landslide and notify concerned agencies/designated officials
Avalanche warning dissemination
Earthquake warning dissemination
the SASE will monitor the Western Himalayan region, comprising 11 major road axes and numerous tracks to forewarn troops and civil populations of any impending avalanche danger the SASE will also monitor identified sites for the occurrence of an avalanche and notify all concerned user agencies at the state and Central government level,including the NEOC/MHA in case of a sudden occurrence of an avalanche, the BRO, state PWD and DGM as well as the Forest Department will notify the MHA and SASE with preliminary information on location, magnitude and damage caused an earthquake may trigger an avalanche and, therefore, the IMD will communicate its occurrence to the SASE for initial assessment of earthquake‐induced avalanches on receipt of information of an avalanche/impending avalanche, the NEOC/MHA will immediately inform the SEOC/DEOC the NEOC/MHA will ascertain the location, magnitude and impact of the avalanche and notify concerned agencies/ designated officials the IMD will monitor seismic activities throughout the country. When an earthquake occurs, the IMD will collect and process the data received and generate a preliminary earthquake report (PER) giving details of the time of origin, location (latitude and longitude) and magnitude of the event the IMD will inform the NEOC/MHA the MHA will notify all designated agencies/officials at the Centre, state and district level responsible for setting their response plan in motion within 20‐30 minutes of the earthquake’s occurrence the IMD will also disseminate earthquake information through the print media, television and radio networks, among others the IMD will provide information about aftershocks, if any, to the NEOC/MHA
Preparedness checklist Sl. Preparedness Measures Agency No. 1. Prepare an information base for NEOC/MHA each type of disaster 2. Prepare a manual for handling the NEOC/MHA NEOC/MHA equipment 3. Train staff on functioning of the NEOC/MHA 143
Action Taken / Remarks
4. 5.
6.
7.
EOCs Maintain regular updates of telephone directory Prepare checklist of action for collection of information from various sources, including early warning agencies and state government/district administration Develop protocol for dissemination of early warning information to designated authorities at the Centre, state government and district administration level Develop a procedure for converting early warning messages into Watch, Alert, and Warning, and obtaining quick approval of the competent authorities
NEOC/MHA
NEOC/MHA
NEOC/MHA
NEOC/MHA
3.11.2 Response Plan for Communications Lead agency: Ministry of Communications & IT Support agencies: Department ofElectronics and Information Technology Directorate of Communication and Police Wireless Ministry of Railways Ministry of Power Ministry of Road Transport and Highways Ministry of Petroleum and Natural Gas Power Grid Corporation of India Limited National Disaster Response Force Ministry of Civil Aviation Ministry of Defence Telecom Service Providers Central Water Commission Objective: To ensure restoration of emergency communication in disaster affected areas. A major disaster situation invariably disrupts the communication system in the affected area at a time when a quick and uninterrupted flow of information would facilitate rescue and relief. In such a situation, Central ministries/departments/agencies are expected to fulfil the following responsibilities towards restoring or setting up alternate communication systems in the affected areas to assist the concerned state government: 144
restore the telecommunication network if it has broken down in the affected areas establish wireless/radio/telephone communication systems between the EOCs and various responding agencies in the affected area for a smooth flow of information set up additional telecommunication facilities for victims/general public establish temporary mobile exchanges on a priority basis
Preparedness and response measures Preparedness: establish a system in association with Ministry of telecommunication service providers for dissemination of Communications Early Warning messages/alerts through SMS/voice & IT messages appoint a nodal officer for coordinating Central assistance communicate the telephone numbers and email address of the appointed nodal officer to all state governments identify the resources likely to be required by the concerned state government after the occurrence of the hazard event prepare and update the inventory of resources, equipments and experts, constitute teams and impart training convene coordination meetings with the line departments and agencies at various levels prepare operational checklists prepare a manual/handbook on repair/restoration of the telecommunication system prepare emergency toolkits for telecommunication Response coordinate with telecommunication service providers for the dissemination of Early Warning messages/alerts through SMS/voice messages coordinate directly with functional counterparts/agencies in the concerned state government to provide the assistance required channelise Central assistance to the state or directly to the affected area/district at the state’s request assess the extent of damage caused to the entire communication infrastructure such as the overhead route damage, cable damage and specific equipment damage establish temporary operational telecommunication facilities in the affected area identify telecommunication facilities that need to be transported to the affected area to establish emergency operational services 145
Preparedness: Ministry of Information Technology Response Preparedness: NDRF Response Preparedness: DCPW Response
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coordinate restoration and repair of telecommunications infrastructure coordinate with telecommunication service providers in the public as well as private sectors for restoration of services in the affected area provide Central teams and critical equipment for repair and restoration of telecommunication networks coordinate with private service providers, facilitate the restoration of their networks and services, and request special assistance from private service providers wherever needed undertake any other tasks related to communication as the situation warrants provide IT‐related capabilities and services wherever needed
protect, restore, and maintain IT networks and related capabilities and services prepare and update the inventory of equipments for establishing communication among responders at disaster sites keep the equipments in functioning condition prepare an operational manual to help establish connectivity with all the important emergency facilities establish communication among responders in the disaster area through wireless, VSAT or SAT phones prepare and update the inventory of equipments for establishing communication links among NEOC, SEOC, DEOC and mobile EOC at the disaster site keep the equipments in functioning condition prepare a manual for supporting, restoring, and strengthening communication links re‐establish communication links among NEOC, SEOC, DEOC and mobile EOC in the affected area establish a temporary wireless communication facility on a priority basis for use by the SEOC, district officials, members of the state government machinery, officials of transit and relief camps, and NGOs
Preparedness: MTNL/BSNL
identify telecommunication networks in various states prepare and update the inventory of resources and equipments constitute emergency teams and train them in restoration of communications network prepare operational checklists
identify the actual and planned action of telecommunication companies (MTNL/BSNL) towards reconstruction/restoration of their facilities identify operational telecommunication networks within the affected area identify telecommunication facilities that need to be transported to the affected site to establish an emergency operational service establish a temporary communication facility through mobile exchanges on priority for use by the SEOC, district officials, members of the state government machinery, officials of transit and relief camps, and NGOs establish a temporary communication facility for public use carry out an assessment of overall damage to the overhead route damage, cable damage, and specific equipment damage Preparedness Checklist Sl. Preparedness Measures Agency Action Taken No. / Remarks 1. Prepare operational Ministry of Telecommunication checklists NDRF, DCPW 2. Prepare an inventory of Ministry of Telecommunication equipments, resources, MTNL/BSNL/NDRF among others 3. Prepare a list of PSUs, private Ministry of Telecommunication agencies, and experts for providing support in restoration of communication 4. Constitute teams Ministry of Telecommunication 5. Train teams Ministry of Telecommunication 3.11.3 ResponsePlan for Evacuation Lead agency: Ministry of Home Affairs/Ministry of Defence Response
147
Support agencies: Ministry of Civil Aviation Ministry of Defence Ministry of Shipping National Disaster Response Force Objective: To assist the affected state government in evacuation of people from areas likely to be affected by tsunami, cyclone, floods, landslide and avalanche. Evacuation of people likely to be affected by an imminent disaster will be the primary responsibility of the district administration. When the time available for evacuation is too short and it may not be feasible to press the government machinery into action for evacuation of people, self‐evacuation may be resorted to. In such a situation the state government may make announcements for evacuation through television and radio networks and other public announcement channels. The state government and the GoI will assist the district administration in evacuating people. The GoI’s assistance in evacuation will be required in cases where the resources available with the state government are not sufficient, such as: evacuation of large numbers of people from far flung areas and islands (Andaman and Nicobar Islands and Lakshadweep Islands, among others etc.) in cases of cyclone and tsunami evacuation of visitors/pilgrims stranded in remote Himalayan regions on account of inclement weather, landslides, flash floods and avalanches evacuation of fishermen from the high seas in case of a cyclone The major considerations for evacuation in such cases would be the time available for evacuation and the length of time required for safe evacuation. In certain cases, the GoI may be required to provide helicopters, aircrafts, ships, and high speed boats for speedy and effective evacuation. Preparedness and response measures Preparedness: identify likely areas where the GoI’s assistance would be MHA required for evacuation assess evacuation needs such as the number of people required to be evacuated and mode of evacuation prepare an evacuation plan keeping in mind a worst case scenario ensure that resources for evacuation such as helicopters, aircrafts, high speed boats and ships to be provided to the concerned state government are available develop protocol for safe evacuation 148
Response
Preparedness: Ministry of Civil Aviation Response
Preparedness: MoD Response
deploy the required resources in close proximity of the affected areas for quick deployment of the resources provide aircraft for evacuation of people from the areas likely to be affected identify/earmark the required resources (from the Indian Army, Air Force, Navy and Coast Guard) in close proximity to the areas identified by the MHA prepare operational checklists/manuals for deployment of forces
Preparedness: Ministry of Shipping Response
149
develop a standard procedure for providing aircraft for quick evacuation of people from areas likely to be affected
Preparedness: NDRF
coordinate with the affected state government for quick assessment of evacuation needs such as the number of people to be evacuated and mode of evacuation identify requirements of resources for evacuation such as helicopters, aircrafts, high speed boats and ships to be provided to the affected state government coordinate with support agencies to mobilise Central resources required by the affected state channelise Central resources to the state at its request or directly to an affected district/area monitor the situation
deploy the required resources (from the Indian Army, Air Force, Navy and Coast Guard) in close proximity of the affected areas for quick deployment identify and provide helicopters, aircraft, high speed boats and ships for evacuation of people from the areas likely to be affected identify/earmark the required resources in close proximity to the areas identified by the MHA prepare operational checklists/manuals for deployment of ships/crews deploy the required resources in close proximity of the affected areas for quick deployment provide high speed boats, ships for evacuation of people
identify teams and equipments for deployment for evacuation
Response
Preparedness: CAPFs Response
prepare operational checklists/manuals for deployment of NDRF
deploy teams and equipments for evacuation in consultation with the affected state government/district administration
identify teams and equipments for deployment for evacuation prepare operational checklists/manuals for deployment of CAPFs deploy teams and equipments for evacuation in consultation with the state government/district administration
Preparedness checklist Sl. Preparedness measures Agency No. 1. Earmark resources/ MHA units/battalions for quick deployment 2. Prepare handbook/manual NDRF, MHA for evacuation 3. Develop evacuation plan MHA 4. Undertake mock/simulation MHA drills 5. Prepare operational MHA/MOD/NDRF/CAPFs checklists 6. Develop Standard Operating MHA Procedure for evacuation 7. Prepare list of MHA agencies/NGOs working in the area which could assist in evacuation 3.11.4 Response Plan for Search and Rescue Lead agencies:Ministry of Defence/Ministry of Home Affairs/NDRF Support agencies: Ministry of Defence Ministry of Health and Family Welfare Ministry of Home Affairs Ministry of Surface Transport Ministry of Civil Aviation 150
Action Taken / Remarks
Ministry of Railways United Nations Disaster Management Team, international and national NGOs, and voluntary agencies Objective: To assist State Government with NDRF, defence forces and CAPFs in carrying out search and rescue operations swiftly in order to save the lives of disaster victims. SAR operations are highly specialised in nature and require extensive training of teams/personnel to be carried out in unstable and chaotic conditions in the immediate aftermath of a disaster event. The concerned state government, therefore, invariably seek assistance from the GoI for SAR services in the case of all major disasters. The defence forces, CAPFs, and the NDRF have extensively been deployed in the past to assist states/districts hit by disasters. Over the years, specialised search & rescue capabilities have been developed for various operations as under: collapsed structure search and rescue medical first response flood rescue deep water rescue rope rescue confined space rescue detection, protection and decontamination for CBRN emergencies SAR capabilities are being created at the national, state, district/city levels as under: National level
1. National Disaster Response Force 2. Quick Response Teams and Quick Medical Response Teams of Ministry of Defence (Army, Air Force, Navy) 3. Emergency Response Teams of Ministry of Health and Family Welfare
State level:
District level
Village level/Community level: *
SDRF Fire and Emergency Services Civil Defence Health Services
Fire Services Local Police and Home guards First Aid by Health Services
Task Force on early warning Task Force on Evacuation Task Force on Search and Rescue Task Force on First Aid
Preparedness and response measures Preparedness: train and equip SAR teams of NDRF, defence forces and NDRF/Defence CAPFs Forces/CAPFs formulate SOPs for the activation and deployment of SAR teams, including their demobilisation 151
develop protocol for positioning of teams in advance develop field guides/operational manual and checklists for SAR operations prepare handbooks on team equipment required impart training to SDRFs Response coordinate with local district/city administration, which shall be responsible for the deployment of SAR teams in the district/city conduct a rapid and comprehensive SAR needs assessment after a disaster or when there is an imminent threat carry out SAR operations by locating, extricating and providing on‐site medical treatment to victims trapped in collapsed structures provide SAR management and coordination assistance to the affected state EOC team coordinate search and rescue logistics during field operations provide status reports of SAR updates throughout the affected areas develop a strategy for SAR operations comprising initial and rapid search as well as in‐depth search operations deploying electronic equipment and the dog squad prioritise search operations based on various considerations such as number of potential victims in a building, size and conditions of the structure, safety and security, as well as availability of resources develop a search plan on the basis of initial assessment and survey of the affected area/building structures for coordinated and synergetic efforts decide on the tactics of SAR operations based on the parameters so defined Response: MHA arrange rapid transportation of NDRF and CPMF teams as well as teams from abroad to the affected areas Preparedness checklist Sl. Preparedness Measures Agency Action Taken No. / Remarks 1. Prepare handbook on team NDRF equipment 2. Develop Standard Operating NDRF Procedures for activation and deployment of SAR teams 3. Prepare field NDRF guides/operational manual 152
checklists/emergency tool kit 4. Keep ready an inventory of NDRF MFR and CSSR kits 5. Prepare a NDRF deactivation/demobilisation checklist 3.11.5 Response Plan for Transport Lead agencies: Ministry of Surface Transport Ministry of Railways Ministry of Civil Aviation Ministry of Shipping Support agencies: Ministry of Home Affairs Ministry of Defence National Highways Authority of India Inland Waterways Authority of India National Disaster Response Force Objective: To coordinate and provide resources to support the needs of transportation in the event of a disaster so that emergency response and recovery efforts are carried out smoothly, private and public transport are restored, and movement and trade of goods resumed. In a major disaster situation, the transportation network in a disaster‐affected area is likely to be impaired. The concerned state government may not have the expertise or the resources to access the affected areas in order to restore the various transportation networks. 3.11.6 Preparedness and response measures Preparedness: appoint a nodal officer for coordinating Central assistance Ministry of communicate the telephone numbers as well as email Surface Transport address of the appointed nodal officer to all state governments prepare field guides/manuals/checklists for a quick assessment of damage to the transport sector prepare transportation safety guidelines for specific disasters constitute and train expert teams from the surface transport sector for emergency repairs, restoration and resumption procure and maintain an inventory of critical equipments develop procedures and systems for emergency procurements Response depute teams for reconnaissance surveys of the extent of 153
damage to the surface transport sector assess the extent of damage to transportation infrastructure and ascertain the extent of Central assistance required prepare a First Assessment Report in conjunction with the concerned state coordinate restoration and repair of transport infrastructure, including the national highways identify and provide required machinery and equipment from external sources for repair/restoration of transport infrastructure dispatch teams of experts from Central agencies, if required, for an inspection of bridges, roads, and other transport structures coordinate with corporations/companies working in the transportation and supplies sector, both public and private, for the restoration of transport services channelise Central assistance to the state or, at the state’s request, directly to an affected district /area perform any other tasks related to transport as the situation warrants
Preparedness: Ministry of Railways Response
Preparedness: Ministry of Civil 154
appoint a nodal officer for coordinating Central assistance communicate the telephone numbers as well as email address of the appointed nodal officer to all state governments prepare field guides/manual/checklists for a quick assessment of damage to rail Infrastructure due to a disaster constitute and train expert teams from the Railways for emergency repairs, restoration and resumption procure and maintain an inventory of critical equipments develop procedures and systems for emergency procurements coordinate and operate special trains in the affected areas provide railway wagons, passenger coaches, trucks, and containers for the movement of relief supplies coordinate restoration and repair of transport infrastructure identify the requirements of rail resources in the affected areas to assist the concerned state government in its response actions perform any other tasks related to rail transport as the situation warrants appoint a nodal officer for coordinating Central assistance communicate the telephone numbers as well as email
Aviation Response
address of the appointed nodal officer to all state governments prepare field guides/manual/checklists for a quick assessment of damage to the civil aviation sector constitute and train expert teams from the civil aviation sector for emergency repairs, restoration and resumption procure and maintain an inventory of critical equipments develop procedures and systems for emergency procurements
Preparedness: Ministry of Shipping / Directorate General, Shipping Response
Preparedness: MoD Response
155
coordinate and operate special flights in the affected areas coordinate restoration and repair of civil aviation infrastructure such as airports and airstrips enforce aviation/airspace control coordinate air traffic in the affected zone perform any other tasks related to air transport as the situation warrants appoint a nodal officer for coordinating Central assistance communicate the telephone numbers as well as email address of the appointed nodal officer to all state governments prepare field guides/manual/checklists for a quick assessment of the damage to the shipping sector constitute and train expert teams from the shipping sector for emergency repairs, restoration and resumption procure and maintain an inventory of critical equipments develop procedures and systems for emergency procurements identify requirements of water transport resources in the affected areas to assist the affected state government in its response actions provide ships, cruises and high speed boats for the movement of people and relief supplies coordinate marine traffic in the affected zone appoint a nodal officer for coordinating Central assistance communicate the telephone numbers as well as email address of the appointed nodal officer to all state governments prepare field guides/manual/checklists for a quick assessment of damage to the transport sector provide aircraft, helicopters and other military vehicles for the movement of people, search and rescue teams, and relief supplies use air transport for reconnaissance of the affected area to identify the needs of immediate response and relief and to assist
the state government in organising its response coordinate and operate special flights in the affected areas coordinate restoration and repair of airfields
Preparedness checklist Sl. Preparedness Measures Agency Action Taken No. / Remarks 1. Prepare field Ministry of Surface Transport guides/manual/checklists Ministry of Railways Ministry of Civil Aviation Ministry of Shipping 2. Constitute and train teams Ministry of Surface Transport Ministry of Railways Ministry of Civil Aviation Ministry of Shipping 3. Develop an inventory of Ministry of Surface Transport equipments and resources Ministry of Railways like earth movers, bailey Ministry of Civil Aviation bridges and construction equipment, among others Ministry of Shipping 4. Maintain a list of PSUs and Ministry of Surface Transport private agencies for Ministry of Railways providing support Ministry of Civil Aviation Ministry of Shipping 5. Constitute a panel of experts Ministry of Surface Transport for inspection of bridges, (for road bridges) roads, and other structures Ministry of Railways (for rail bridges) 3.11.7 Response Plan for Relief Logistics and Supply Chain Management Lead agencies: Ministry of Home Affairs/National Disaster Management Authority Support agencies: Ministry of Defence Ministry of Railways Ministry of Oil and Natural Gas Ministry of Surface Transport Ministry of Civil Aviation Ministry of Agriculture 156
Ministry of Food and Civil Supplies United Nations Disaster Management Team, international/national NGOs
Objective: To provide necessary support to the concerned state government for setting up emergency communication in the disaster affected areas. Normal supply chains such as networks of procurement and supply, transportation, storage/warehousing, inventory management,and distribution of essential relief supplies could get disrupted in the event of a disaster. In such a context managing the supply chains will require a robust framework that incorporates assessment of the situation, identification of relief needs, information flow, inventory management, a reliable supply in the given time frame, transportation and distribution channels. The concerned state government may seek the following assistance: emergency food supply (in some cases drinking water also), first aid kits, sanitation, temporary shelters, and bulk distribution of coordinated relief supplies for people affected by the disaster assistance in transporting relief supplies from other parts of the country any other logistical and resource support that may be needed The NDMA and the MHA have initiated steps for the setting up of National Disaster Mitigation Resource Centres (NDMRCs)whichwill be located along with the NDRF battalions. These NDMRCs will serve as reserves of relief stores to cater to the emergent requirements, especially in the first 72‐96 hours following the disaster. Preparedness and response measures Preparedness: set up NDMRCs MHA/NDMA designate mobilisation centres/hubs at metropolitan cities/other strategic locations for the mobilisation of relief supplies from different parts of the country designate airports/railway stations in different parts of the country for the movement of relief supplies formulate guidelines for handling/storage of relief supplies develop an integrated logistics system for natural disasters lay down procedures for procurement, packaging, stocking, and transportation, among others, in the response phase identify alternative means of transportation to reach relief supplies to the state/district likely to be affected by a disaster event establish an inter‐agency coordination mechanism for relief logistics and relief aid make a provision of funds for the management of relief logistics make a rapid assessment of emergency relief needs in consultation with the affected state government 157
Response
Preparedness: Ministry of Petroleum and Natural Gas Response Preparedness: Ministry of Food and Consumer Affairs Response
establish a mobilisation centre at the airport/railway station for the movement of relief supplies deploy special aircraft/trains/ships/trucks for the movement of relief supplies coordinate transportation of material from different parts of the country, and coordinate and provide relief supplies from neighbouring states coordinate transportation (air, rail, road, water) for other Central ministries/departments/agencies locate, procure and issue resources to Central agencies involved in disaster response and supply to the affected state adopt alternative means of transportation to reach relief supplies to the affected state/district coordinate with other agencies such as of the UN as well as NGOs for the transportation of relief aids take up any other tasks related to relief supplies as the situation warrants identify emergency supply channels for kerosene gas, diesel, and petrol in the areas likely to be affected by a disaster
supply additional quotas of kerosene gas, diesel and petrol in the affected areas as per requirements identify emergency supply channels for food and civil supplies such as sugar, wheat and rice, among others, in the areas likely to be affected by disasters supply additional quotas of food and civil supplies such as sugar, wheat and rice, among others in disaster‐hit areas
Preparedness checklist Sl. Preparedness Measures No. 1. Prepare list of resource centres 2. Prepare list of mobilisation centres 3. Prepare operational checklists for team leaders 158
Agency
Action Taken / Remarks
MHA/NDMA
MHA/NDMA
MHA/NDMA, Ministry of Petroleum and Natural Gas,
and team members 4.
Develop guidelines for handling relief supplies and their storage
5.
Make a list of PSUs and private agencies for providing logistic support
Ministry of Food and Supplies MHA/NDMA, Ministry Petroleum and Natural Ministry of Food and Supplies MHA/NDMA, Ministry Petroleum and Natural Ministry of Food and Supplies
Civil of Gas, Civil of Gas, Civil
3.11.8 Response Plan for Temporary Shelters/Relief Camps Lead agencies: Ministry of Housing and Urban Poverty Alleviation Support agencies: Ministry of Home Affairs National Disaster Management Authority Ministry of Surface Transport Central Building Research Institute, Housing and Urban Development Corporation , Building Materials & Technology Promotion Council
Objective: To provide Central assistance to the concerned state government for
providing safe, hygienic and secure living spaces to meet the physical needs of disaster‐ affected individuals, families and communities. In the event of a devastating disaster, large numbers of people are rendered homeless. In such situations, shelter becomes a critical factor for survival of the affected people in the initial stages of a disaster. Further, shelter becomes essential for protecting a distressed population from harsh climatic conditions for post‐disaster, extreme weather conditions can be life‐ threatening. Moreover, shelter is significant for victims of disasters to retain their human dignity and to sustain family and community life in difficult circumstances. The affected state government may seek assistance in terms of technical experts or resources for setting up of temporary or intermediate shelters in the affected areas. Preparedness and response measures Preparedness: develop minimum standards for setting up shelters and NDMA relief camps stockpile tents, blankets and other shelter materials at the NDMRCs Preparedness: develop guidelines for the assessment of the housing sector Ministry of Urban in consultation with structural engineers/experts from Development reputed engineering institutions 159
develop guidelines for the repair/retrofitting of earthquake damaged housing units in consultation with structural engineers/experts from reputed engineering institutions conduct training programmes for engineers drawn from the PWD and other departments of the state government to carry out damage and loss assessment of housing sector identification of options for setting up relief camps and temporary or intermediate shelters keeping in view the climate as well as living habits of the people in the affected area in advance enter into agreements with suppliers of tents and other shelter materials
Response
Response: MoD
Response: MHA
provide experts for a quick assessment of functional and stable building structures carry out a quick assessment of the damage to the housing sector and requirement for temporary shelters and relief camps provide cost‐effective designs for multipurpose shelters which can be built with locally available materials according to local needs provide pre‐fabricated materials for the construction of temporary camps/intermediate shelters provide tents, blankets and tarpaulins, among others, for setting up relief camps (MoD has informed that the Armed Forces may not be able to provide dedicated tented accommodation for relief camps and has suggested to delete this paragraph). We may delete
supply necessary stores such as tents, blankets, and tarpaulins, among others, for setting up relief camps Preparedness checklist Sl. Preparedness Measures Agency Action Taken No. / Remarks 1. Maintain inventories of Ministry of Urban Development manufacturing agencies 2. Prepare a handbook on tent Ministry of Urban Development structure and other collapsible structures 3. Prepare a handbook on Ministry of Urban Development assembling of structures 160
4.
5.
Maintain inventories of Ministry of Urban Development agencies that can supply prefabricated materials for construction of intermediate shelters. Maintain a list of suppliers of Ministry of Urban Development tents and other temporary structures
3.11.9 Response Plan for Public Works and Engineering Lead agencies: Ministry of Urban Development (Central Public Works Department) Support agencies Ministry of Defence Ministry of Rural Development Ministry of Home Affairs Objective: To provide technical experts, equipments, and critical supplies for public works and engineering to assist the concerned state government in emergency repair of public works, public utilities, damage mitigation and recovery activities. A disaster event may damage public works and public utilities. These range from roads and bridges to public buildings and structures that are critical to normal functioning of economy and social life. The resumption of these services is also important for providing emergency services and relief assistance. Recovery from disaster can begin only with repairs and restoration of these services. Preparedness and response measures Preparedness: appoint a nodal officer for coordinating Central assistance Ministry of communicate the telephone numbers as well as email Urban address of the appointed nodal officer to all state Development governments identify the technical assistance needs (experts, equipments and critical resources) called for in the case of specific disasters prepare a handbook/operational manual/guidelines on inspection of roads and bridges, including underwater inspection of foundations and piers, among others constitute teams of engineers as well as experts to be deployed for inspection of roads and bridges, including under‐water inspection of foundations and piers, among others prepare an inventory of equipments and critical resources prepare and update the list of suppliers of equipments and critical resources 161
Response
in advance enter into an agreement with suppliers for supplying, equipments and critical resources at short notice
assess the specific technical assistance needs (experts, equipments, and critical resources) in the affected areas to assist the state government in advance position teams of experts/engineers for quick deployment after the disaster event coordinate directly with the Public Works Department and other agencies in the concerned state government to provide the assistance required by it channelise Central assistance to the state or, at the state’s request, directly to an affected district/area depute teams of engineers/experts for inspection of public buildings, public utility facilities, and bridges, including underwater inspection of foundations and piers as per the state government’s requisition for identification of structures endangered by impending collapse Provide assistance to state governments for emergency restoration of critical public facilities. provide assistance to the concerned state government for the removal and disposal of debris in order to facilitate repair and restoration of public works facilities and public utilities provide assistance to the concerned state government for carrying out an inspection of all the buildings in the affected area so as to check their safety in the light of possible aftershocks Preparedness checklist Sl. Preparedness Measures Agency Action Taken / No. Remarks 1. Prepare a handbook on Ministry of Urban Development disaster engineering (CPWD) assistance 2. Prepare an inventory of Ministry of Urban Development equipment/agencies/ (CPWD) personnel 3. Keep ready operational Ministry of Urban Development checklists for team heads and (CPWD) team members 4. Prepare guidelines on Ministry of Urban Development specific (CPWD) equipment/engineering
162
needs for each disaster
3.11.10 Response Plan for Public Health and Sanitation Lead agency: Ministry of Health and Family Welfare Support agencies Ministry of Railways Ministry of Defence Ministry of Rural Development Ministry of Environment Department of Animal Husbandry Ministry of Home Affairs Objective: To provide Central assistance which supplements the resources of an affected state to respond to public health needs so as to prevent and mitigate a sudden outbreak of epidemic, water and food contamination as well as other public health‐related problems in the aftermath of a disaster. People affected by a disaster invariably become susceptible to serious, often fatal, illnesses from water and vector‐borne diseases caused by unsafe drinking water, poor hygiene and sanitation. Inadequate excreta disposal, lack of solid waste management, inadequate vector control measures and improper environmental and personal hygiene may lead to a spate of illnesses and mortality. Therefore, promotion of hygiene and sanitation is critical to controlling communicable diseases in a post‐disaster situation. Preparedness and response measures Preparedness: prepare a plan for managing public health emergencies MoHFW appoint a nodal officer for coordinating Central assistance notify the telephone numbers as well as email address of the appointed nodal officer to all state governments disease surveillance surveillance at international airport/ports and ground crossings constitution of rapid response teams determine the types of diseases expected as well as the drugs and other medical items required in the context of specific disasters identify hospitals, laboratories and other facilities which could be used for emergency services determine the emergency medical service needs expected in the case of specific natural disasters stockpile essential medicines, drugs and vaccines prepare and update the list of suppliers of medicines, drugs and 163
Response
164
vaccines in advance enter into an agreement with suppliers for providing bulk stocks of medicines, drugs and vaccines / supply chain management for all medical supplies identify requirements of resources in the affected areas to assist the state government in its response efforts constitute, equip, and train teams of public health experts such as epidemiologists for deployment in disaster affected areas develop adequate human resources for providing assistance constitute teams and provide training for assessment and monitoring on sanitation and hygiene prepare and keep ready mobile hospitals, stocking them with emergency equipment that may be required after a disaster take measures to increase public awareness about the promotion of sanitation and hygiene coordinate with the affected state and anticipate/identify public health issues/problems mobilisation of human resources assess public health emergency needs set up mobile hospitals supply medicines and disinfectant as per the request of the affected state provide for post‐disaster public health measures such as immunisation, sanitation and disinfection deploy emergency response teams comprising doctors, specialists, epidemiologist and paramedics provide additional supplies of medicines, disinfectants, vaccines as well as surgical and medical equipment’s as per the assessment of the situation and demands of the affected state government augment existing health facilities, including staff in the affected areas, by requisitioning/hiring services and setting up field hospitals assist the state authorities by augmenting laboratory services, if necessary, for epidemiological surveillance, disease reporting and control measures such as mass inoculation for the prevention of communicable diseases assist in setting up a public health information system for the collection, analysis and dissemination of information for decision making by authorities at district, state and national levels respectively coordinate with the IMA, IFRC/ICRC, UN agencies and NGOs, among others, for rendering health services mobilise private sector resources for assistance to the affected state
identify requirements of resources in the affected areas to assist the concerned state government in its response actions coordinate directly with functional counterparts/ agencies at the state level to provide the assistance required by the state channelise Central assistance to the state or directly to an affected district/area at the state’s request take appropriate measures for vector control as per local assessments, including physical, environmental and chemical protection launch mass media campaigns for the promotion of sanitation, health and hygiene deploy assessment and monitoring teams in the affected areas psycho‐social care risk communication in case of international/national health concern gathering information from worldwide agencies for biological events
Preparedness checklist Sl. Preparedness Measures Agency No. 1. Prepare checklists of MoHFW symptoms of common diseases along with medicine dosages 2. Prepare checklists of measures MoHFW for maintaining hygienic conditions 3. Constitute medical teams/ MoHFW teams of experts 4. Prepare an inventory of MoHFW medicines and disinfectants 5. Prepare a doctors’ manual for MoHFW emergency relief 6. Prepare operational checklists MoHFW 7. Prepare an inventory of MoHFW medical equipments 8. Prepare a checklist of doctors’ MoHFW tool kit 9. Prepare a list of PSUs and MoHFW private agencies for providing support in restoration of communication 3.11.11 Response Plan for Restoration of Power
165
Action Taken / Remarks
Lead Agency: Ministry of Power Support Agencies: Ministry of Coal Ministry of Railways Ministry of Petroleum and Natural Gas Central Electricity Authority Power System Operation Corporation (POSOCO)/NLDC Other Public Sector Units such as Power Grid Corporation of India Limited, NTPC Limited, NHPC Limited, Nuclear Power Corporation of India Limited Objectives: To assist state governments in repairing power infrastructure and restoring necessary power/electricity supply in the affected areas, as well as to provide assistance to state governments and local power companies for establishing emergency power/electricity supply in the affected areas In the aftermath of a natural disaster, there could be widespread damage to power/electricity infrastructure, resulting in prolonged electricity failure in affected areas. The state governments may find it difficult to repair and restore the power supply and the GoI may be required to provide assistance. Preparedness and response measures Preparedness: appoint a nodal officer for coordinating Central assistance communicate the telephone numbers as well as email •Ministry of address of the appointed nodal officer to all state Power governments Central prepare an inventory of machinery and equipment required Electricity for repair/restoration of power infrastructure Authority develop toolkits for the assessment of damage to power Power System installations by means of a reconnaissance survey Operation prepare an operational manual for emergency repairs Corporation/ constitute, equip and train emergency repair teams from NLDC Central agencies Power Grid convene coordination meetings with public and private Corporation of sector corporation/companies working in the area of power India Limited generation and supply NTPC Limited prepare a list of experts for a detailed damage assessment of NHPC Limited the power sector Nuclear Power Corporation of India Limited assess the extent of damage to power supply installations Response and ascertain the requirements of Central assistance prepare a First Assessment Report in conjunction with the concerned state 166
identify the machinery and equipment required and procure from external sources for repair/restoration of the power infrastructure prepare a list of resources required after the first assessment review the total extent of damage to power supply installations by means of a reconnaissance survey dispatch emergency repair teams equipped with tools, tents and foodstuffs dispatch emergency repair teams from Central agencies if required. coordinate with all concerned agencies for providing emergency power/electricity supply in the affected areas coordinate with public and private sector corporations/companies working in the area of power generation and supply for speedy restoration of the electricity supply provide experts for a detailed damage assessment coordinate restoration and repair of power/electricity infrastructure any other tasks related to power as the situation warrants prepare a disaster/emergency plan for power installations prepare an operational manual for repairs constitute, equip and train emergency response teams
Preparedness: Power Grid Corporation of India Limited , NTPC Ltd, NHPC Ltd, Nuclear Power Coporation of India Ltd Preparedness Checklist Sl. Preparedness Measures No. 1. 2. 3. 4. 5.
167
Determine the types of damages to power infrastructure expected Determine the equipments/ resources required by the affected state Prepare an inventory of equipments
Agency CEA
PGCIL, NTPC Ltd, NHPC Ltd, NPCIL Ltd PGCIL, NTPC Ltd, NHPC Ltd, NPCIL Ltd Constitute teams from Central agencies Ministry of Power Prepare manuals on handling of All concerned CPSUs like PGCIL, equipment/repairs NTPC Ltd, NHPC Ltd, as well as IPPs
Action Taken / Remarks
6. 7.
8.
Prepare operational checklists for emergency response teams Prepare a checklist of emergency tool kits
Ministry of Power, PGCIL, NTPC Ltd, NHPC Ltd, etc. POSOCO and Other Concerned CPSUs/Organizations under Ministry of Power such as PGCIL, NTPC Ltd, NHPC Ltd and NPCIL Ltd Prepare an exhaustive list of PSUs and National Load Dispatch Centre private agencies that can provide Regional Load Dispatch Centres support in power restoration
3.11.12 Response Plan for Information Management, Media Management and Helpline Lead agencies: Ministry of Home Affairs, National Disaster Management Authority Support agencies: Ministry of Information and Broadcasting Ministry of Science and Technology Ministry of Information Technology Ministry of Earth Sciences Ministry of Water Resources Ministry of Telecommunication Ministry of Health and Family Welfare Ministry of Power Ministry of Civil Aviation Indian Space Research Organisation/Department of Space (ISRO/DoS) National Disaster Response Force Press Trust of India Objective: to collect, process and disseminate information about an actual or potential disaster situation to all stakeholders so as to facilitate response and relief operations to collect reliable information on the status of the disaster and disaster victims and convey the same to the print and electronic media, both national and international to keep the public informed about the impact of disaster and various measures taken for the welfare of the affected people In the event of any disaster it is the primary responsibility of the authorities to provide accurate information on the unfolding situation. However, getting accurate information about the impact of a disaster in the initial period of response is a challenging task, for most existing channels of information and communication could get damaged and impaired. 168
It is essential to have a plan of information management win the event of a disaster so that reliable information about the situation can be disseminated through media networks, print and electronic, and other means of outreach. One of the most critical needs in any disaster is to have a simplified way of identifying and tracking victims and providing information to next of kin, relatives and friends of the victims and general public. Preparedness and response measures Preparedness: prepare and update the directory containing telephone NEOC,MHA, and numbers, fax and email addresses of all concerned Ministry of agencies/authorities in the GoI/state government and other line Information and departments Broadcasting/ develop an information base for specific hazards NDMA develop templates of early warning messages for specific hazards develop a protocol for the dissemination of information to all television and radio networks as well as print media prepare checklists for collection of information from various sources, including early warning agencies and the concerned state government set up a system for instant messaging (SMS) to all concerned authorities develop formats for collection of information from the field train EOC staff and conduct simulation drills/mock exercises coordinate with all public and private television channels and radio networks for the dissemination of disaster warning signals brief different media channels on action taken and the latest status issue bulletins, press releases and other advisories set up toll free numbers (helplines) in various agencies/ facilities of GoI provide people information about the helpline numbers provide basic safety precautions and dos and don’ts to people seeking such inputs collect, process and disseminate information to the public about the welfare of citizens in the affected area collect updated information from SDMA, DDMA, SEOC, and DEOC update information through print and electronic media as well as their websites keep the country updated and well informed about the status of the disaster provide situation updates to all television and radio networks develop appropriate graphics and pictures to spread useful information in the disaster‐affected area 169
Response: MHA/NDMA
send updates to various electronic networks and print media at regular intervals update and feed information to key government agencies set up a mechanism for identifying and tracking victims and making help available to them review and update precautionary measures and procedures to be followed NEOS/MHA control room will serve as a Node for early warning/alert message to public information channels etc. flash warning signals on all television and radio networks coordinate, collect, process, report and display essential elements of disaster‐related information update and feed information to key government agencies provide accurate information through print and electronic media as well as its website for easy availability and appropriate access to the members of public. provide situation updates to all television and radio networks at regular intervals keep the country updated and well informed about the status of the disaster develop appropriate graphics and pictures to disseminate useful information among all participating agencies as well as the people provide ready formats to collate information on different aspects of the disaster from the concerned state/district to facilitate accurate communication document all response/relief and recovery measures prepare situation reports every 3‐4 hours during the initial response phase of a disaster and thereafter twice or once daily any other tasks related to information and planning
Preparedness checklist Sl. Preparedness Measures No. 1. Develop and maintain an information base on each disaster for ready dissemination Prepare a template for collecting all the important information from the affected state and district Develop a facility for press conferences and media briefing 170
Agency MHA MHA MHA
Action Taken / Remarks
Set up communications and Internet connectivity for a seamless flow of information Prepare templates/formats for issuing press releases, bulletins and advisories Connect with all the television and radio networks as well as important newspapers Create a separate website for disaster information and provide updates for the website
MHA MHA/Ministry of Information and Broadcasting Ministry of Information and Broadcasting MHA
3.11.13 Response PlanProcedure for Food and Nutrition Lead agencies: Department of Food and Civil Supplies, Ministry of Consumer Affairs, Food and Public Distribution Support agencies: Ministry of Surface Transport Ministry of Civil Aviation Ministry of Railways Ministry of Social Justice and Empowerment Ministry of Home Affairs National Disaster Management Authority National Disaster Response Force Food Corporation of India Food and Agriculture Organisation Objective: To provide additional and appropriate food supplies and transport such supplies to areas affected by a major disaster, necessitating a response from the GoI Disasters may lead to situations where affected people are deprived of food and nutrition for their survival and well‐being. The supply chain may be affected, disrupting the affected population’s access to food. The state government, though primarily responsible for providing prompt and adequate food supplies to disaster victims, may not be in a position to provide an adequate quantity and quality of food in a timely manner to the affected population. In such a situation the state government may seek assistance from the GoI for additional supplies of items such as food grains and sugar. The Central Department of Food and Public Distribution is expected to provide an adequate supply of essential food items that are in keeping with the dignity of local food practices of the disaster victims. 171
Preparedness and response measures Preparedness: appoint a nodal officer to coordinate Central assistance Department of communicate the telephone numbers as well as email Food and Public address of the appointed nodal officer to all state Distribution governments identify food warehouses/grain banks/reserves in different parts of the country make an assessment of the likely requirements of food grains, sugar and other essential food items in different parts of the country and position supplies in advance prepare an inventory of available food stocks for different regions and arrange food stocks for different regions of the country as per local food practices and nutritional needs of the affected population, appropriate and acceptable to recipients set minimum quality standards for the food to be distributed to the affected population Response coordinate with state authorities and assess requirements of food for the affected population make emergency food supplies available to the state from national and regional warehouses ask states that are geographically close to the affected areas to send food to the disaster‐affected areas make an assessment of additional requirements of food grains for distribution to the disaster‐affected people allocate additional quotas of food grains, sugar, cooking oil, and fuel to the affected states ensure adequate supplies of food grains to the concerned state for distribution through the Public Distribution System coordinate with the Ministry of Railways and Surface Transport for the transportation of additional quotas released to the affected state government provide food grains and other civil supplies to address the nutritional needs of the affected population, including malnutrition and micronutrient deficiencies of specific groups such as lactating women and infants Preparedness checklist Preparedness Measures Agency Action Taken Sl. No. / Remarks 1. Identify warehouses /stocks Department of Food and Civil of food grains Supplies 172
2. 3. 4. 5.
Prepare region/state‐wise food basket Establish minimum standards of maintaining food quality/ quantity Prepare inventory of available resources of food Prepare handbook/guidelines on allocation of additional quota / supplies to states
Department of Food and Civil Supplies Department of Food and Civil Supplies Department of Food and Civil Supplies Department of Food and Civil Supplies
3.11.14 Response Plan for Emergency Health Management Lead agencies: Directorate General of Health Services, Ministry of Health and Family Welfare Support agencies: Ministry of Defence Ministry of Railways National Disaster Management Authority/National Disaster Response Force Private hospitals and healthcare providers Objective: To provide medical assistance to the affected state in response to its demand for emergency medical care in the aftermath of a disaster when the resources of the state and district are overwhelmed. Natural disasters may cause widespread injury and death resulting in mass casualties and in some cases also lead to outbreaks of epidemic diseases which require specialised interventions. Health is always a critical factor for the survival of the injured and those directly exposed to health hazards in a post‐disaster situation. Earthquakes invariably cause severe injuries while floods and cyclones enhance the potential risk of communicable diseases manifold. In the aftermath of a disaster, factors such as overcrowding and poor shelter, poor sanitation, hygiene and contaminated food and water supply chains, breakdown of health services, inappropriate or delayed disposal of dead bodies and carcasses, may further exacerbate the situation. The affected state government may not have the required expertise or resources for taking appropriate measures in the case of direct impact such as injury and trauma and indirect impact such as epidemics, infectious/communicable diseases in the affected areas. Preparedness and response measures Preparedness: prepare a National Emergency Health Plan MoHFW set up facilities for mobile/field hospitals 173
Response
174
determine emergency medical service needs expected for specific natural disasters such as earthquake, cyclone, floods and tsunami, among others identify hospitals and laboratories in public and private sectors maintain a stock of essential medicines, drugs and vaccines prepare and update the list of suppliers of medicines, drugs and vaccines in advance enter into an agreement with suppliers for providing bulk stocks of medicines, drugs and vaccines prepare and keep ready mobile hospitals and stock them with emergency equipment that may be required after a disaster event check the stocks of equipment and drugs which are likely to be required after the disaster for the following: o analgesics and antibiotics for the treatment of cuts prone to tetanus, drugs used for the treatment of water‐borne diseases, including oral rehydration supplies o burns and fire infections o breathing equipments o fissure material o surgical dressing o plaster tolls o disposable needles and syringes o local antiseptics coordinate with the affected state and anticipate/identify emergency health issues/problems arising out of both mass casualty and public health situations assess the needs of emergency medical relief in consultation with the affected state constitute and deploy specialised medical teams to handle orthopaedic and surgery‐related injuries including anaesthetists and radiologists set up mobile/field hospitals supply medicines and disinfectants as per the demand of the state provide for post‐disaster public health measures such as immunisation, sanitation, and disinfection deploy emergency response teams comprising doctors, specialists, epidemiologists and paramedics provide additional supplies of medicines, disinfectants, vaccines,surgical and medical equipments as per the assessment of the situation on ground and demand of the the affected state government augment existing health facilities, including staff, in the affected areas by requisitioning/hiring services and setting up
Preparedness: NDRF
Response
Preparedness: MoD
Response
175
field hospitals assist the state authorities in detection, investigation, preparedness and response by augmenting laboratory services, if need be, for epidemiological surveillance, disease reporting and control measures for prevention of communicable diseases assist in setting up a public health information system for collection, analysis and dissemination of information for decision making at the district, state and national level coordinate with the Indian Medical Association, International Federation of Red Cross and Red Crescent Societies/International Committee of the Red Cross/United Nations agencies, NGOs and others for rendering health services provide mobile medical hospitals and other resources available with the GoI assist in mass inoculation where necessary mobilise resources from the private sector for assistance to the disaster‐affected state conduct trainings for NDRF battalions/teams in medical first response (MFR) and life saving techniques conduct advanced training courses for doctors and paramedics for emergency medical response procure medical equipments and supplies of medicines provide MFR to disaster victims in the areas of deployment provide emergency medical services in the areas of their deployment through their doctors and paramedics conduct trainings for QMRTs set up facilities for mobile field hospitals, ARMVs and heli‐ ambulances procure portable X‐ray machines, mobile operation theatres, resuscitation equipment, dressing material, splints, and life‐ saving drugs Ensure technical training of medical teams for employment in disaster relief operations. activate QMRTs as per the state government’s requisition set up mobile field hospitals deploy ARMVs and heli‐ambulances when requisitioned supply dressing material, splints, portable X‐ray machines, mobile operation theatres, resuscitation equipment and life‐ saving drugs to QMRTs, mobile field hospitals and ARMVs Provide Armed Forces medical resources for disaster relief operations in coordination with MHA.
Preparedness checklist Sl. Preparedness Measures Agency Action Taken No. / Remarks 1. Prepare inventories of agencies that MoHFW can provide emergency medical care 2. Determine types of equipments/ MoHFW resources required by the affected state for specific disaster situations 3. Prepare inventory of medical MoHFW equipments 4. Constitute teams from Central agencies MoHFW 5. Prepare manuals on handling of mass MoHFW casualty cases 6. Prepare operational checklists for MoHFW medical teams 7. Prepare a list of private hospitals that MoHFW can provide support in emergency medical care 8. Maintain a stock of essential medicines, MoHFW drugs and vaccines 9. Prepare a list of hospitals/doctors/ MoHFW experts 3.11.15 Response Plan for Drinking Water and Water Supply Lead agency: Ministry of Drinking Water & Sanitation Support agencies: Ministry of Rural Development Ministry of Health and Family Welfare Ministry of Consumer Affairs and Public Distribution Ministry of Environment Ministry of Home Affairs National Disaster Management Authority National Disaster Response Force Objective: To provide assistance to the concerned state government in providing disaster‐affected areas with clean drinking water and to reduce the spread of diseases through water. Access to water for drinking as well as other purposes is critical for the survival of disaster victims. In a major disaster situation, surface water sources and storage tanks get contaminated, thus adversely affecting the water supply. Most of the water available is usually unfit for drinking. The need of the hour is preparedness and effective response. 176
Ministry of Drinking Water and Sanitation has developed Standard Operating Procedure for Rural Drinking Water Supply and Sanitation. Preparedness and response measures Preparedness: appoint a nodal officer to coordinate Central assistance Department of communicate the telephone numbers and email address of the Water Supply appointed nodal officer to all state governments determine the various aspects of damage that a disaster can cause to the drinking water supply infrastructure identify the kind of assistance required by the concerned state government develop manuals and toolkits for assessment of damage to the drinking water supply infrastructure such as pipelines, water treatment plants and overhead tanks prepare an inventory of equipment required to clean up water, including desalination machines and stocks of chlorine tablets, among others prepare a list of PSUs and private agencies which could provide support in restoration of the drinking water supply constitute teams and impart training in identifying damaged water pipelines and repairing/restoring them develop operational checklists for teams prescribe procedures for identifying contaminated water bodies and de‐contamination set drinking water standards Response identify requirements of resources in the affected areas to assist the concerned state government in its response actions coordinate directly with functional counterparts/agencies in the state government to provide the assistance it requires channelise Central assistance to the state or directly to the affected district/area as requested by the state carry out an assessment of damage to the drinking water supply infrastructure such as pipelines, water treatment plants and overhead tanks deploy teams and provide necessary equipment for cleaning of water, including desalination machines when required supply a stock of chlorine tablets to the concerned state provide technical assistance in identifying damaged water pipelines and getting them repaired and restored assist in identifying contaminated water bodies and provide technical assistance in de‐contamination prescribe procedures for storing water in a way as to maintain its purity provide desalination plants and water purification kits for the 177
concerned state government set drinking water standards in affected areas any other task related to drinking water and water supply
Preparedness checklist Sl. Preparedness Measures No. 1. Set minimum standards for safe drinking water 2. Determine the various equipments/ resources required by the affected state for restoration 3. Prepare inventory of equipments 4.
5.
6.
7.
8.
Agency
Action Taken / Remarks
Department of Drinking Water Supply Department of Drinking Water Supply
Department of Drinking Water Supply Constitute teams from Central Department of Drinking agencies for providing assistance Water Supply Prepare manuals/checklists on Department of Drinking handling of equipment/repairs, Water Supply etc. Prepare operational checklists for Department of Drinking Central teams to be deployed for Water Supply restoration of drinking water Prepare a checklist of emergency Department of Drinking tool kit Water Supply Prepare a list of PSUs and private Department of Drinking agencies for providing support in Water Supply restoration of drinking water supply
3.11.16 Response Plan for Damage, Losses, and Needs Assessment Lead agency: Ministry of Home Affairs
Support agencies: A number of Central ministries (Agriculture, Power, Telecommunications, Surface Transport and Railways, among others) Ministry of Civil Aviation Indian Space Research Organisation/ Department of Space (ISRO/DoS) National Disaster Response Force Ministry of Defence Central Water Commission Ministry of Environment & Forests Objective: To provide assistance to the affected state government in assessing the impact of a hazard event, determine the critical needs, provide accurate information for decision 178
making, evaluate the effectiveness of relief interventions, and suggest various measures to help in early recovery. The aftermath of a hazard event is often characterised by lack of accurate information about the magnitude of damages, losses and needs. It is a difficult task to provide such precise information. At the same time there is a need to estimate the requirements of relief and recovery so that the GoI can provide necessary assistance to the affected state. In view of the various information needs that arise immediately after a disaster, it is necessary to conduct an assessment of damage, loss and needs. Such an assessment guides response operations, and provides necessary inputs for relief and recovery planning. The assessment is conducted in two stages: a preliminary needs assessment, carried outimmediately in the aftermath of a hazard event to plan out response and relief operations in the affected area, a detailed damage and needs assessment for an estimate of damages and losses in different sectors (agriculture, housing, infrastructure, and service sectors), and estimate the needs for recovery and reconstruction It is the responsibility of the concerned state government to conduct the preliminary as well as detailed assessment. The GOI steps in only in response to a detailed memorandum submitted by the state government. It assigns experts from different line ministries and specialised agencies to conduct the assessment. Preparedness and response measures Preparedness: develop tools/techniques for damage, loss and needs MHA assessment prepare operational guidelines and checklists organise logistics and prepare itinerary of the assessment team constitute teams of experts and organise training programmes for the members of the assessment team Response make a quick assessment of the damages and losses caused by the disaster in the affected area as regards the population, agriculture, infrastructure, livelihoods and environment identify secondary hazards and potential threats to the affected population assess the needs for restoration of critical infrastructure, lifeline and public utilities assess the needs of the affected population in terms of food, water, shelter, sanitation, health and psychosocial needs coordinate with the MoD to provide helicopters for aerial surveys , wherever needed provide structural engineers/experts from reputed institutions to the affected state government for a structural 179
Preparedness: MoD Response Preparedness: ISRO/DoS Response Preparedness: State government/ NDRF Response
Preparedness: MoRD Response
180
inspection of public buildings, infrastructure, and assets in specific sectors; develop a broad outline of recovery in these sectors constitute and depute inter‐ministerial teams of experts to carry out damage and needs assessment jointly with the concerned state government prepare assessment reports, share them with the state government and other agencies and post them on the relevant web site identify/earmark resources to be deployed for carrying out aerial surveys. In certain cases, the ministry can assign experts to conduct assessments, particularly with respect to roads, bridges and other infrastructure components. provide helicopters for aerial surveys of the affected sites, especially in border and hilly states, to ascertain the extent of geographical area/population affected by the disaster and the severity thereof develop decision support tools for damage assessment in disaster affected area provide remote sensing maps/data of the affected area provide satellite imagery of the affected area both before and after the disaster event for an assessment of damage develop checklists for collection of field observation data on damage caused by disasters collect data on damage, losses, and needs and provide them to the assessment team take care of the logistics for the assessment team to visit the disaster affected area provide the assessment team the necessary assistance on ground to check and validate data Liaison with State Government for assessing the requirement of IAY houses in Special Package Approve Special Package and provide funds when needed Ensure funds with State for MGNREGA In the event of national calamities resulting in mass
dislocation of rural population, the adult members of rural households of the areas so affected may seek registration and get job cards issued by Gram Panchayat or Project Officer of the area of temporary location and submit written or oral application for work under MGNREGA to the Project Officer or the Gram Panchayat of the area of temporary relocation. Preparedness Checklist Sl. Preparedness Measures No. 1. Constitute damage and needs assessment teams comprising officials drawn from various ministries/ departments /sectors 2. Prepare inventory of equipments/ resources required for conducting assessments 3. Prepare manuals and guidelines on collection of data, interpretation of data, and estimation of damages, losses, and needs 4. Prepare a handbook for the team which provides information on logistics and deployment of damage and needs assessment teams, among others
181
Agency MHA
Action Taken / Remarks
MHA
MHA
MHA
CAPACITY DEVELOPMENT CHAPTER IV
4.1 Needs and Capacity Assessment Achieving the goal of an holistic approach to disaster management need a framework of a capable institutional setup with competent professionals, educators, trainers and field practitioners in different aspects of the disaster management, starting from addressing hazards and vulnerability, prevention and mitigation, preparedness, early warning, relief and recovery to be planned and their deliveries organized in a systematic fashion. It is also required to have the capacities to ensure the disaster mitigation and management actions do not create future risks or jeopardize the sustainably of the natural resource of the livelihood systems. It is, therefore, necessary to identify the existing deficiencies in the system, based on experience with respect to previous disasters as well as the emerging needs of changing disaster risk scenarios, for example, the growing challenges due to climate‐change impacts, urban agglomeration, migration, environmental degradation, and industrial development. The means of achieving the DRR objectives, the goal set for Disaster Management and Risk Reduction Capacity Development (DMRR) are following: 4.1.1 Goal of DMRR capacity development Goal of the national capacity building efforts for DMRR is “Developing self reliance in understanding risks associated with hazards & vulnerability, planning & reducing risk and preparing for the residual risk of disasters, with maintaining ability of resilience for recovery”, through the following two aims: Reducing disaster risks and impact to help foster the process of sustainable development Inculcate the culture of prevention & safety in living and actions, and maintaining people’s right to live in good health and safe environment. In order to achieve the above goal and its above envisaged two key aims, following objectives of human resource capacity development have been agreed upon. The principal routes of improving proficiency and capacity are (1) education and (2) training. Research is an inseparable area or intervention for effective education and training. Research is also imperative for sustaining the abilities and for the culture of innovation and continual improvement. Though education and training are treated separately in the human resource and capacity development framework, these two are to some extent overlapping in their modes of implementation and achievements particularly the case of higher and professional education. There are certain dedicated training institutes where education and research goes hand in hand along training interventions, whereas higher education especially those using exercise and field based learning, observation and experiments, including sampling, analytical, design and planning related contexts are actually training 182
intensive education. Therefore, the broad framework of human resource and capacity development shall revolve around the central framework of education, training and research to be spread across the government, society, corporate and cooperation among various stakeholders. 4.1.2 DMRR Capacity development propounds for following six key objectives: 1) Developing Knowledge, Skills and Attitude – with sense of accountability 2) Wisdom based planning and harmonious mechanism of implementation (rather than plumpy or jargonous) 3) Developing self motivation and participatory understanding and cooperation 4) Proficiency for understanding, analyzing, coordinating, managing the risk reduction strategy and actions. 5) Prepare community by informing community for risk management and disaster response 6) Build the capacity of institutions and individuals engaged in disaster risk management and response. 4.1.3 Present Scenario: Currently, the key institutions for imparting training in the disaster management sector at the national level is National Institute of Disaster Management and at the state and the district levels, Centre for Disaster Management located at the Administrative Training Institutions. All these institutions are organizing nearly 450‐500 programmes in a year. They are largely providing training to the government officials. Other than this, a few NGOs are also engaged in training and capacity building activities by organizing programmes for the community and the local level functionaries. In almost all the training programmes the methods which are being used predominantly is the lecture method. Almost 90 percent of the inputs in these training programmes are based on the method which is most suitable for child learning (Being Told). The inputs with adult learning process (thinking, trial and error, simulation based learning) are very negligible. Participants, over the years, who all are attending these programmes are giving regular feedback to these institutions that they need practical training instead of theoretical only. Hence, there is an urgent need to revamp the training delivery methods which are currently in use. The paradigm shift is needed in the country for making a judicious mix of various adult learning methods. But, this is not a simple task. Most of the training institutions are dependent on the resource persons who are either working with the government and discharging various duties or retired as civil servants. They are having lot of experience with them to share with the participants but they are not trainers. Hence there is a need to create cadre of trainers who understand the various methods of adult learning so that they may plan their lessons accordingly. Also, the simulation based training is an expensive one. The cost dedicated to the training programmes need to be enhanced. There is also a dilemma with the institutions. Persons to be trained are huge number so the focus would be on quantity and the quality gets compromised. Conducting a simulation and field based training is very intensive exercise. The current approach adopted by these institutions probably will not allow in the desired shift. Hence the HR plan suggests some policy change in the training and capacity building 183
if we are really concerned about the quality change in the training which may bring some substantial change at the ground, we do not have any option but to change the focus. NIDM, over the years is trying to put in the application of various training methods. Case study, interactive, field exposure and simulation based training has wider acceptance and is found to be useful than the restricted class room oriented programme. HR plan would emphasize in redesigning the programmes by using much more simulations, case study methods, group exercises, field visits etc which will have more of adult learning methods than the child learning in the existing as well the new programmes. High multi hazard vulnerability of the Indian continent poses a great challenge before the national and sub‐national governments to mitigate and prevent the impact of disasters through an integrated approach. Building human resource capacities at all levels of the Government and the community is one of the key elements in the national roadmap prepared by Govt. of India for disaster prevention, mitigation, preparedness and response. Hence, we need to conceptualize the Capacity Development framework with multi‐hazard, interdisciplinary (blend of sciences, humanities and engineering) and multi‐levels commiserating with the prevailing environmental, socio‐economic, cultural and technological background. 4.1.4 Capacity Development Framework Capacity has been defined as the ability of the people, organizations and society as a whole to manage their affairs successfully. Capacity Building is the creation of an enabling environment with appropriate policy and legal Interdiciplinary frameworks, institutional Coordination development, including community participation (of women, in particular), human resources development and strengthening of managerial systems. Therefore, capacity building is a long term, continuous process, in which all stakeholders participate. It is much more than training and hence involves human resource development, organizational development and development of an institutional and legal framework. Every individual, community and organization has some inherent capacity which needs to be acknowledged and further developed. Therefore, focus is on Capacity Development as a process whereby people, organizations and society as a whole unleash, strengthen, create, adapt and maintain capacity over time. Capacity Development Framework is an integrated framework that involves all the sectors and stakeholders at all levels in relation to all hazards. Multi hazard includes all the hazards confronting hazards. Multi‐sector involves all the stakeholders involved with the 184
management of risks in all the phases of disaster management cycles, which include various branches of the government, scientific, technical and academic organizations, civil society, media, corporate sector, community, family and even individuals. Multi‐level implies regional, national, provincial and local levels. This widens the scope of capacity development to include a whole range of actors. This plan should be viewed in the context of this overarching Capacity Development Framework. 4.2 Institutional Analysis Institutions and institutional networks in India have been working on DM and RR related training and educational activities, are given in Table1. Primarily the institutions pioneering education and training in the area of disaster preparedness and relief were following: 1) National Centre for Disaster Management (now NIDM) 2) Disaster Management Institute, Bhopal 3) National Civil Defense College, Nagpur 4) National Fire Service College, Nagpur 5) Institute of Ecology & Environment – Sikkim Manipal University 6) Tata Institute of Social Sciences, Mumbai 7) School of Environment Management, Indraprastha University Delhi 8) Indira Gandhi National Open University Delhi. 9) National Disaster Response Force (NDRF) A brief description of strengths & weaknesses and opportunities in the existing institutional settings of disaster management HRCD – training and education is being given here:‐ 4.2.1 National Institute of Disaster Management: A Centre for Disaster Management was established at Indian Institute of Public Administration in 1995 by the Ministry of Agriculture. NIDM was created by an office order in 2003 to upgrade the Centre for Disaster Management of IIPA which is an autonomous institution under the Department of Personnel & Training (DoPT). However, since its inception the status of institute as autonomous academic institute in the pattern of Indian or National institute like IIT/IIM or a University has been officially unclear despite of its birth from IIPA with carry forward of the academic staff of NCDM at IIPA to the NIDM. Although born originally in 1995 and upgraded to NIDM in 2003 the institute has freshly prescribed its mandate in the DM Act of 2005 but the dilemma regarding the staffing, pay‐ pattern and institute’s faculty and capacity development has been vague. However, NIDM at its campus and with responsibility of implementing and coordinating the Central Sector Scheme, achieved continual improvement in terms of its achievements fulfilling the mandate areas of training, taken up certain research and documentation activities and networked at national and international levels. Broad guidelines for NIDM are prescribed by NDMA whereas its affiliation is with the Ministry of Home Affairs. The lack of career advancement and personnel growth opportunities, need of academic and functional autonomy in particular for research & development promotion, policy analysis and advancement of faculty capacity are the current key challenges with the institute. 4.2.2 Disaster Management Institute Bhopal: By carving out a professional section from the State Government’s Environmental Planning 185
and Coordination Organzation (EPCO) in the backdrop of Bhopal gas tragedy, DMI was established in 1987 with the mandate of training, documentation, research and awareness in industrial and natural disasters and environmental related other urban and rural planning issues targeting at capacity development of Govt. officials, public/private sector, etc. The geographical coverage of activities was entire country, and was supported by the NORAD, Central Ministry of Environment and Forests, Central Ministry of Agriculture, UNICEF, World Bank Aided Project, WWF, DOAP, etc. Later DMI was registered as a Society under the Deptt of Housing & Environment of Madhya Pradesh, with staffing pattern in UGC system for academic staff and Ministerial system for administrative staff. The MoEF plans to support and upgrade DMI as National Disaster Management and Risk Reduction Institute for activities in the area of industrial/chemical disasters, climate‐change and other issues of concern in disaster management and risk reduction. 4.2.3 State Disaster Management Training Centre(s) State level (or UTs) Centres for Disaster Management were made functional in many states/UTs primarily at the State Administrative Training Institutes. In some states these have been created by amending/enhancing the scope of previously existing institutes of Land Management or Management or Development, whereas case of State DM centres in Universities/Research Institutes (e.g. in Tezpur University, GB Pant Himalayan Environment Institute Sikkim) also existed. In some states like Gujarat – the state institute of DM were created (proposed in Jharkhand, Chhattisgarh, etc.) but despite the better infrastructure developed (or proposed) these lack professional and trained interdisciplinary faculty dedicated to work on disaster management and risk reduction issues. Most of the times the faculty were drawn from the surplus officials or retired persons from line departments/secretariat on contract or deputation and the stability of talented faculty staff has been a common issue of challenge. There were also issues relating to disparity in staffing pattern, qualification, pay pattern etc. of the CDM faculty as were in aberration sometimes in the same centre, for example, in Anna Institute Chennai, HIPA Himachal, HIPA Haryana, DMI Bhopal, and many other DMCs follow UGC pattern, whereas in many others salaries given were consolidated amount (like at ATI Mysore, Chhattisgarh, etc.). Although, some of these State DM Centres got support from DoPT, UNICEF, UNDP, etc. besides Central Scheme prevailed, ad‐hoc approach caused strategic obstacles especially to continue the centres from 2012 onwards. 4.2.4 Disaster Management in Other State Training Institutes DM related trainings and CD activities in the States/UTs remained centred at ATIs and suffered many challenges due to lack of involvement of other state level training and CD institutions including Universities and corporate institutes. Within states, there are institutions, viz., WALMI, Forest Research/Training Institute, Institute of Local Self Government, Environment Planning/Training Institute, SIRD, Regional Soil & Water Conservation Training Institutes, Krishi Vigyan Kendras (KVKs), NGC’s state network, Regional Science Centre, Agricultural Training Institutes, Urban Development Centre, Health Training Institute, etc. which on their own undertaking activities that related to DM and DRR, and need to be mainstreamed into the HR and CD network at state level. National Safety Council has state chapters in the state with trained professional members, and has implemented APELL (Awareness and Preparedness for Emergencies at Local Level) and the framework may be mainstreamed in holistic DM CD initiatives. 186
4.2.5 Disaster Management in Higher Education Sector There are 562 Universities in the country including Central Universities and Deemed Universities, and this vast and capable network of institutions, infrastructure and proficiency need to be involved in HR and CD activities for DM and DRR. DM in higher education has been in place primarily under the modules of EIA and natural resource management, urban studies, in the Universities abroad like Bradford University School of Environment, EIA Centre of Manchester University, Colorado Natural Hazard Centre, Potsdam Institute of Germany, UNU School of Peace and Sustainability, etc. In India, the DM higher education started quite late with the advent of a Certificate and then a Diploma course at IGNOU, followed by M.Sc. course in IIEE of Sikkim Manipal University. Later the M.A./M.Sc. course in DM was started by TISS School of Habitat Studies and a weekend MBA for working professionals in DM at Indraprastha University School of Environment Management. However, disaster management being of interdisciplinary nature based on blend of sciences and touch of humanities and application of technology caused increased recognition of disaster management as a discipline in the University starting X and XI plan period. Modules/specializations and courses were started by the Universities primarily under their environmental studies curriculum but in certain instances in geography, social work and management as well. However, research inputs took place across wider range of disciplines starting social sciences ‐ economics, anthropology, law, to sciences – ecology, geology, biology, chemistry, to engineering – information technology, Geo‐Informatics, civil engineering and planning. Currently, most Central Universities have either/ or are in process of creating Disaster Management Centre under the interdisciplinary school of environmental studies (BHU, Ambedkar Univ. Lucknow, Allahabad Univ., Central Universities of Haryana, Punjab, Rajasthan, Gujarat, Bihar, Assam, Sikkim, Amarkantak Tribal University, etc.), whereas certain State Universities (for e.g., Mahatma Gandhi University Kerala, Doon University Dehradun, Ambedkar University Delhi, Gautam Budh University, Bundelkhand University, Jiwaji University Gwalior, etc. have started DM studies under their faculty of environment and regional studies. In some cases like in Bhavnagar University, the DM Diploma course runs in Humanities whereas the Punjab University has dual sector DM courses – one in environmental geography (Masters course) and another in Defense Studies (Diploma) under Public Administration faculty. IGNOU also takes up course on DM under Public Administration in Social Sciences and also in Interdisciplinary Environmental Studies under Sustainability Chair. Chitrakoot University has launched DM course under faculty of chemical sciences. Central Building Research Institute (a CSIR institute) has started a M.Sc. in disaster mitigation, whereas Punjab Technical University launched full courses on industrial disaster and fire management. University of Delhi transformed its courses from purely science based to make interdisciplinary environment studies to include disaster management the module, whereas Jawaharlal Nehru University adapted offering elective on disaster management in combination with EIA and natural resource management within the Environment Science course itself. Dr B R Ambedkar University aimed at social science studies has a dedicated module on disaster management under the faculty of human ecology. However, the IDMC‐2 has recommended to maintain the interdisciplinary context 187
of disaster management studies despite of its reference as a disaster ecology, disaster economics, disaster sociology or disaster engineering. UGC has now considered promoting disaster management education through its scheme of vocation education and support for refresher and orientation courses. IIMs, IITs and IISc have incorporated DRR related aspects in their interdisciplinary curriculum primarily aimed at promoting research and professional development, but have not established dedicated educational and research facility on DM related aspects. However, recently established IISERs and new IIMs/IITs have intangibly DRR related aspects in their scope of work. 4.2.6 Disaster Management in Basic College Education On the initiative of NDMA and with the involvement of NIDM, UGC has developed a model suggestive curriculum of an optional/specialization module on disaster management for all undergraduate studies across the country to fit in all subject combinations. The course has been designed recognizing the interdisciplinary inputs required in the teaching of the course and to attract interest of the students. The compulsory UGC module on environmental studies implemented in all UG studies – 1st year or Semester 2, as per directive of Hon’ble Supreme court of India, has a dedicated module on disaster management and the expert committee recommended for its strengthening with project work and field based exercises/learning. Besides, it was also recommended to strengthen DM knowledge in infusing mode across other modules in science, social science, arts, commerce, agriculture, medical, engineering, biology, pharmacy, management, etc. to cover relevant topics of disaster risk reduction. Recently, there are initiative to induce DM and DRR knowledge through the system of NSS, NCC, college eco‐clubs, and cultural programmes of students. 4.2.7 Disaster Management in Engineering Education Despite of safety and reliability being an established engineering disciplines in institutions abroad, Indian engineering education has rarely incorporated hazard risk management and disaster risk reduction as curricular components, except few modular inputs in environmental engineering, chemical engineering and industrial engineering modules of B.Tech and B.E.. However, introduction of disaster management in mining engineering course has been prevailing. Recently, AICTE on the initiative of NDMA and involving NIDM has developed a model curriculum on disaster management for the students of Civil engineering. Besides this, the compulsory course of Environmental studies as per directive of Hon’ble Supreme court has incorporated DM module as been improved by AICTE. The capacity development in terms of faculty members to deal with the interdisciplinary nature of disaster management is a challenge that has not yet been looked into either by AICTE or the technical universities or boards of education. IITS and NITs being centrally funded have the capacity of establishing dedicated DM centres but have not yet taken such initiatives. 4.2.8 Disaster Management in Medical Education Building a culture of healthy life styles to promote health and diseases is one of the most cost effective ways of mitigation. Inculcating this habit at an early age ensure development of healthy life style. Therefore communicating information among the school children about health hazard at primary level is vital. 188
Hazard assessment and preventive approach of health related disasters and health impacts of disasters have been dealt in the medical institutions/colleges at two levels (a) emergency medicine, and (b) environmental health, whereas first medical response is part of the emergency responders training and not for the medical or health professionals. Recently the institutions are setting up Trauma care centres along the emergency medical system with training facilities. WHO has supported AIIMS, NIOH and Madras Medical College with Poison Control Centres. Department of community medicine and, preventive & social medicine divisions are the natural place for infusion of disaster medical training curriculum and training courses. Maulana Azad Medical College, PGI Lucknow, Chandigarh have been active in disaster management related curriculum, study materials development and training. Initiatives from ICMR, Ministry of Health and Indian Medical Board are yet to be visible in order to promote HR and CD in the area of disaster management involving all systems of medicine – modern, traditional, ayurvedic and alternative medicine. 4.2.9 Disaster Management in School Education Disaster management in school education got a concern starting UN‐IDNDR itself during 1990s but has been recognized by education boards – Central Board of Secondary Education (CBSE), ICSE and recently by the state boards, promoted by the efforts of the Central Government and National Council of Educational Research and Training (NCERT). NCERT has been arguing the concept of infusive model of promoting disaster management and risk awareness among school teachers and students and for developing capacities to save students life, property and environment by including related topics in all subjects of studies rather than additional books. However, later NCERT and school boards in states/UTs have included disaster management books under geography, value education, environment and social sciences. Project mode of DRR awareness and through the value education/foundation course a culture of prevention and safety may be promoted in the students. 4.2.10 Disaster Management Education in Civil Services Following the recommendations of the High Powered Committee, United Nations‐ International Strategy for Disaster Reduction (UN‐IDNDR), and Disaster Management (DM) Act, the disaster management related module in the training of Civil service officials were initiated during past decade. However, the module was inducted in the training of probationers of IAS whereas it remained a token module within the mid‐term career advancement training of IFS officers. Recently a model curriculum has been suggested by NDMA in cooperation with NIDM for inducting DM and DRR components in all 4 level training of IAS officers. Similarly there are initiatives for induction of DM course in IFS training starting from probationer’s course. Induction of DRR within the training of other civil services including IFS, IPS, IES, IRS, Indian Economic Service, Statistical Service, Medical Services, is yet to be institutionalized. Initiatives are needed from LBSNAA Mussorie, IGNFA Dehradun, ASCI Hyderabad, Indian Police Academy, Hyderabad, etc. under coordination of NDMA. 4.2.11 Capacity Development Programmes of NDMA/MHA NDMA and Govt. of India initiatives towards human resource and CD in area of DM and DRR were significant, but most of such programmes did not yield the institutional mechanism for follow‐up or continuity of efforts on sustainable basis. Such efforts need to be relooked 189
from viewpoint of sustainability and continuity by way of institutionalizing and establishing the mechanism for follow‐up. Following are major programmes of capacity development operated by NDMA: i. CD component of National Cyclone Risk Mitigation Project ii. School Safety Capacity Development Programme iii. Capacity Buildings of Architects and Engineers in Earthquake Risk Management iv. Programme for Enhancement of Emergency Response Table 1: Institutes and Institutional network working on Disaster Management in India Institution HRCD Support and limitations Needs and suggestions Activities DM and DRR Broad guidelines of NDMA; Clarifying status of the National Training needs MHA patronage, Aims to be national level capacity Institute of analysis, University. building academic Disaster Lack of professional capacity institute. Management Trainer’s modules / growth, lack of support Clearing faculty career manuals, professional & technical advancement dues and Networking, support, Lack of career professional growth Teaching/ advancement and employee avenues. education, benefits. Research and extension awareness HR Pending and delayed support grants. Planning, strategic decision making. Medium term (5 years) Research, Dilemma of status (Govt. and long term (10 years) documentation deptt. / Institute / Academic participatory vision plan & internship, / Ministerial?) at par with of institute. Knowledge NIT / IIT / IIPA / Universities Institute status par with sharing, etc. / Subordinate office? IIT/IISERs/IIMs. DM modules in MoEF support on Dedicated and Indian APPA Course/ climate‐change capable Centre for Institute of M.Phil. level related capacity Disaster Public DM building. DST support Management and Administratio course, courses in S&T, for short courses, DRR Governance n urban, rural UNDP support. with experienced dev., climate‐ DoPT support. faculty. change, etc. Limited professional Support of NDMA, Origin of Centre and senior staff on MHA, MoEF, ICFRE, for DM, evolved DM and DRR issues, Planning to NIDM. DM as part of Commission and environmental policy Ministry of and DM centre. Agriculture, Water resources, etc. Training design, Central Sector Mainstreaming DM Centres Conduct of scheme of support, DM faculty with (at State courses and UNDP, UNICEF and permanent / ATIs) workshops, DoPT support, State established set‐up Networking Govt. support. of faculty, like resource Limitation in terms urban, 190
Institution
DM Centres (at SIRDs)
Geological Survey of India
HRCD Activities persons, awareness, etc.
Support and limitations of sustainable professional faculty and staff. Diversity of background and interests.
Only few SIRD functional in DM (e.g., UP), training courses on CBDRM, water, environment, climate & DM.
Training courses on field methodology, risk analysis of Landslides and other geo‐ hazards, mining, etc. Training of National faculty Remote members, Sensing research Agency, Hyderabad / scholars on RS‐ GIS applications IIRS in Land‐use, Dehradun EIA, risk analysis for NDM, etc. LBS National DM modules in all stages of IAS Academy of in Administratio training, other civil n services
191
Central Sector scheme of support, MoRD, UNICEF and DoPT support, State Govt. support, other schemes. Lack of professionally capable faculty on DM and RR.
Departmental funding Collaboration with DST, IBM, Ministry of Mines, MoES, etc. Lack of clear mechanism on DRR related activities. ISRO/ Deptt. of space funding. NNRDMS programme support. Institutional mandate. Lack of professionally developed modules for interdisciplinary target groups.
Needs and suggestions environment, water, geography, public administration. Consortium with other state training / research institutes and University. SIRD to engage in state DM consortium for training and CD along ATIs/DM Centre, other state training institutes and University. NIRD to develop faculty on DM in Rural context Dedicated centre for DRR cutting across Environmental, Engineering, Mining Social Geology divisions of GSI and collaborating with NIDM and NDMA.
Collaborative programmes with NDMA, NIDM and Universities CDM, with pre‐developed and tested training modules with adequate emphasis on conceptual and field application aspects of RS‐ GIS for holistic DRR framework. i. DoPT, NDMA support Centre for DMRR to have ii. Lack of professionally interdisciplinary qualified qualified / and experienced faculty experienced members; Collaboration interdisciplinary with NIDM & other faculty for DM & RR institutes ‐ IITs/IIMs, training Universities, etc.
Institution
HRCD Activities Training IFS officers, State forest officials, Scientists from other organizations on DM, climate‐ change and DM, forest fire, Pest attack, IAS, erosion, etc.
Support and limitations
Forest Research Institute, Dehradun
Disaster Management Institute, Bhopal
Training design and conduct on natural and chemical disasters, for Govt. officials and public/ private sector and NGOs.
State Govt. society, MoEF, GIZ, World Bank supported. Supported by MoAg, now by MHA schemes. MoEF to upgrade to National Disaster Management & Risk Reduction Institute. Lack of experienced interdisciplinary faculty at senior level; over‐emphasis on consultancy to private sector.
MDC for SHE, One year course Bhubaneswar in Safety, Fire, Health and short‐courses for Govt. officers, Corporate, Community, NGOs, etc.
Patronage of State Govt. in PPP mode. Support of Corporate, State Govt. OSDMA, Dept. Factories. Lack of multi‐hazard focus in the courses, Lack of Central assistance/ support to utilize the excellent infrastructure and devoted professionals.
192
NIDM joint programmes FSI /ICFRE / MoEF schemes Lack of dedicated facility on DM related CD actions, lack of qualified or experienced faculty on DMRR.
Needs and suggestions A dedicated centre on DM at FRI in collaboration with Silviculture and Ecology Divisions. FRI Consortium on DM with IIRS, FSI, Wadia Institute, NIH, Doon University and DMMC for DM activities. Multi‐disciplinary faculty strengthening for education, training and research. Develop balance of HRCD mandates with consultancy – Govt. support and guidance of NDMA / MoEF for this. Develop consortium with EPCO, TCPO, LAMP, University, NSC, IIFM, WALMI, ICAR, RMNH & other regional institutes. Strengthening MDC‐SHE on natural and industrial multi‐ hazard management, with central assistance. Strengthening cooperation of State Relief Deptt., MDC‐SHE. Enhancing curriculum to include new and emerging topics.
Institution
IITs/ IIMs / IISc
HRCD Activities Training courses for officials, faculty, professionals and researchers.
Central Universities – Centre for DM Studies
DM short‐term training courses, DM specialization in PG & M. Phil. courses, Diploma course
State Universities (Interdiscipli nary Faculties)
Diploma course, Specialization module in PG courses.
TERI University
Workshops, training and PG courses with module on DM
Academic 193
Refresher and
Support and limitations i.
Good infrastructure and logistic facilities and learning environment. ii. Support of faculty and students. iii. Lack of regularly planned courses (occasional and sponsored under schemes) iv. Lack of a dedicated centre / division of interdisciplinary nature to address DM studies. i. Most Central Universities have planned DM Centre, few have already functional. ii. UGC funding and research grant, DST, MoEF, MoES, CSIR, ICAR support. 1) Some have functional DM studies centre, some others have in their plan. 2) Lack of faculty with interdisciplinary expertise and DM related experience. i. Specialization module on DM in courses on environment, NRM, policy, GIS and Climate‐change. ii. Lacks a dedicated module on DM and DRR. Some with UGC
Needs and suggestions i.
ii.
iii.
Establishing disaster management studies interdisciplinary centre. Short/Medium and long term (specialization) professional courses in disaster management. Research activities to support case studies and course modules to support training.
Specialization module on DM in interdisciplinary courses at PG and M. Phil., Certificate and Diploma course. UGC model syllabus to be customized accordingly.
1) Universities located strategically may be preferred for State Govt. support. 2) UGC may consider plan / scheme grant support. i. ii.
Interdisciplinary Centre for DM may be created by TERI. UGC may consider plan / scheme grant.
Dedicated
Institution
HRCD Activities Staff Colleges Orientation courses, training.
Tata Institute MA/M.Sc course in Disaster of Social Management Sciences
CEPT University, Ahmedabad
Short‐courses on DM for officials, faculty, Modules in Graduate, PG courses
Indian Institute of Ecology & Environment
Pioneered on DM education in the country. PG courses in DM, Sustainable development, etc.
Directorate
Courses
194
for 1.
Support and limitations funds included DM module course in environment, geography and social work courses. Lacks linkage with Govt. Higher education department and DM Deptt. 1) Centre for Disaster Management under Habitat Management. 2) Lacks interdisciplinary faculty inputs on S&T based, policy planning approach. Interdisciplinary faculty strength, field exposure based studies. Good institutional network. Environmental planning Div. coordinates but lacks a dedicated centre. i. Degree awarded by Sikkim Manipal University. ii. Comprehensive course content and good study materials. iii. Lacks course updating with recent issues and emerging topics.
Courses
Needs and suggestions
share of UGC funding under interdiscipli nary areas for courses. Networking with State DM Deptt with Higher Education and ASCs.
1) Centre for DM studies be strengthened with interdisciplinary faculty staff. 2) UGC may consider plan / scheme grant. Interdivisions Centre for DM studies may be established. State Govt. or Corporate grant may be mobilized. UGC may consider plan / scheme grant. i. Cooperation with NGOs, corporate and Govt. may improve the standard of delivery. ii. May affiliate with the University in the region and improve the facilities of teaching. with 1. Networking with
Institution General of Mines Safety
HRCD Activities Mines safety officers
Support and limitations
2.
National Safety Council
Directorate General of Factory Advise Service & Labour Institutes
Training Institutes of Central Para Military Forces
Centre for Environment Education (CEE)
195
international standards. Lacks multidisciplinary inputs and exposure to inter‐sectoral issues in 2. the contents.
Short‐courses Courses for officials, industry, in safety, DM, private/public, NGOs, emergency etc. on disaster risks in management, industry, tourism, planning, natural hazards, etc. health, etc. Lacks dedicated training set‐ up and training professionals. Certification Internationally accredited Diploma course course and good market on Safety, short‐ reputation. courses Lacks diversification and multi‐hazard exposure. Lacks focus on risks in case of natural hazards or responders’ issues. Training to Four training institutes: NDRF National Industrial Battalions Security Academy, Basic Training Centre, Central Training College, BSF Institute Tekanpur. Battalion level training institute. Lack of consortium mode and inter‐affiliation of institutes at one point. Training Materials, design and conduct of courses on DM
Needs and suggestions
Multi‐hazard focus approach Special emphasis on coastal and mountain hazards, ecoDRR Coordinating National Green Corps programme of master trainers, training, eco‐clubs
Engineering Institutes, State DM Centre and Training Institutes. Exposure of DM professionals desired. Dedicated training and research facility may be developed by NSC in states. Cooperation from SDMAs be mobilized. NDMA and MoLE may support. Course may be updated and / or optional module may be added to improve the delivery. MHA, NDMA and MoEF may network to support with incentive. Creation of NDRF Academy for coordination of training, under NDMA guidance and MHA affiliation. NDRFA to network with 4 institutes, NIDM, National Police Academy, National Fire College, NCDC for NDRF’s training. A DM education facility to be set‐up at CEE, with support of MoEF / NDMA, or MHA. Coordination and networking of CEE zonal groups with Universities, NIDM, SDMAs, State Climate‐ cell, etc.
Institution
HRCD Activities
Support and limitations
Centre for Science & Environment
Training courses on Analytical and Planning methods in DM
on National Civil Training disaster, relief, Defense response, College community mobilization.
National Fire Service College
Short Training and Diploma in Fire Management
Central Building Research Institute
Short courses on safe buildings, M.Sc. disaster mitigation.
Wadia Institute of Himalayan Geology
Short courses on Landslide RM, seismicity, Glacier studies
GB Pant Institute of Himalayan
Short‐courses at Sikkim Unit, Almora on DM
196
Needs and suggestions
national network Lack of continuous and dedicated DM programmes Courses for corporate, Govt., scholars, NGOs on EIA, social impact assessments, risk analysis, etc. No dedicated programme for DM and DRR Targeting network of civil defense, Govt. and NGOs Being institutionalized with NDMA and MHA’s DM framework. Lack of adequate faculty and interdisciplinary professionals on its core mandate – first response, relief, WATSAN, food, etc.. Full time courses, established institute. Lack of adequate network with users in DM sector, ULBs except industry/ police.
Key NGC interventions in teachers training.
Courses on structural safety and resilience. Green building and Bio‐ concrete innovations. Poor network with users and training Institutes. Capacities on geo‐risk analysis and forewarning. Lack of network for performance in HR and CD actions.
Potential for DM and DRR facility at CSE for role of Media, Science and Environmental coverage. Down to Earth may regular feature on DM. To be upgraded to National Institute of Relief Actions and Civil Defense. Network with Ministry/Dept of Youth Dev., Sports, School Education, Women & Child, etc. Vision planning. To be upgraded to National Fire Management Institute Courses to be improved to include holistic DM on fire management. To be a centre of excellence on building safety. Courses be in network of NDMA, NIDM and Universities. DST / MoES may support a DM centre for case studies. Courses in collaboration with petroleum Univ., FRI and NIDM. Institutionalizing DM Centre and mobilization of MHA,
Supporting a DM Centre under Central Sector scheme.
Institution Environment
National Safety Council
HRCD Support and limitations Needs and suggestions Activities issues, Research Available but capable NDMA, MoEF support. studies. professionals not Networking with other engaged in DM training. institutes in hilly areas. Training of International exposure, NSC to be in formal Industrial, trained professionals network with NDMA Corporate, Govt. Implemented and NIDM. APELL and NGOs on programme NSC may coordinate safety, DM, etc. Lack formal institutional with MoEF and MARGs, MoLE and corporate integration with DM houses. framework.
4.3 Capacity Gaps Looking to the various functions and need of capacities of performance in different stages of disaster management: pre‐disaster assessments and planning, mitigation and preparedness, disaster response, relief, reconstruction and recovery, and feeding the lessons into future strategies of disaster management, following are some key proficiency identified for human resource developments: Risk Analysis and Vulnerability Assessment Mitigation Selection and Planning Climate‐change Adaptation and Resilience Planning DRR and DM policies and legislation Safety Design, implementation and monitoring Mitigation Analysis and risk auditing Risk Communication and Spatial planning Residual risk and emergency risk analysts Emergency preparedness planning Emergency response management planning Emergency responders (search, rescue, first aid, critical care) Relief (shelter, water, sanitation, waste, food, rehab) management Impact (Damage & Loss), , needs assessment Safe construction and retrofitting Recovery (livelihood, environment, sustainability) planning Mainstreaming DRR into developmental planning Knowledge support system to support planning and implementation Integrating DRR into sustainable development Looking to the multi‐disciplinary inputs and interdisciplinary coordination needs, the HR plan need to address DM and DRR infusion across the various disciplines, besides developing core professionals with advanced knowledge and skills on DM related assessments, policies, planning, monitoring and evaluation and field level coordination. Capacity building is much more than training and includes the following: i. Human Resource Development, the process of equipping individuals with the understanding, skills and access to information, knowledge and training that 197
ii.
iii.
enables them to perform effectively, Organizational Development, the elaboration of functional concepts, structures, processes and procedures, not only within the organizations, but also the relationships between different factors, approaches and sectors (public, private, community), and Institutional, Legal and Policy Framework, making legal and regulatory changes, strategies and enabling organizations, institutions, agencies and the people at all levels and in all sectors to enhance their capabilities.
Different sectors work for their own organizational goal and their software and hardware are developed accordingly. The human proficiency of the organizations is built to respond to the respective job responsibility. Disaster Management in the form of emergency response and relief has been confined to one department (Relief and rehabilitation department of the state) and also it was not considered or seen as regular work of the department. Hence the capacity to respond to disaster was never seen as a priority. Now with the changed mandate, the new job and tasks have been added to the job profile of every sector. Now there is a need to develop a detailed exercise by each sector to identify the capacity of individuals and of Institutions in respect to the new job task need for disaster management capacity building. Therefore, it is important to plan the development of human resources with clear objectives. Following four objectives are defined to set the motives and goal of the envisaged human resource plan (STRAT‐HRD): i. Systematic approach to empowering human‐performance to the functions of disaster management and risk reduction. ii.
Institutionalization and institutional development for promotion of disaster management and risk reduction education and practice.
iii.
Mainstreaming ‘DRR knowledge & skills’ into higher and basic education, R&D sector and personnel proficiency development.
iv.
Development and implementation of programmes and projects enabling the proficiency and performance of professional and practicing personnel in disaster management.
4.3.1 Creation of Cadre of Disaster Management Professionals In order to develop proficient capacities of disaster management and risk reduction related expertise and services in the country, it is utmost important to raise a section of practitioners, professionals, educators and trainers as an identified Cadre of DM Professionals. Following are the means envisaged in this HR and CD plan towards developing and promoting a DM Cadre of professionals. i. Paradigm shift from ‘in‐service training centric’ to ‘induction training and education’ centric. ii. Honors mode of Specialization‐cadre Raising on DRM (from Civil and allied services) iii. Specialization modules of interdisciplinary higher education on DRM, iv. Super‐specializations DRM related modules of research based courses in higher and professional education. v. Specific course programmes on specific aspects of DRM (Degree, Diploma and Post‐Graduation). 198
vi. vii. viii.
DRM educators and trainers. DRM service practitioners (emergency service managers). Emergency service volunteers.
Keeping DM professional cadre isolated would not be appropriate looking at the administrative and governance system of developmental planning and disaster management in India. Besides this, disaster response being the activity based on an event, the isolated cadre of DM shall not be economically viable strategy and would also contradict with the in‐pace approach of HRCD (except the dedicated NDRF). Developing specializations and super specializations of knowledge and skills related to handling DRR and DM functions in the person’s own area of work shall be an effective option (for example, a medical professional specializes in emergency medicine, and further super‐ specializes in handling burn injuries). The DM professional cadre development plan is discussed below: i. Induction training and higher education: There is need to give more emphasis on developing DRM capacities by introducing it at the induction/probationers training and in the higher education curriculum itself, rather than orientation courses. Re‐ orientation of in‐service personnel often faces the challenge of un‐learning and mal‐ adaptations. Therefore, the notion is to boost up the training efforts at all stages for a plan period and then gradually phase out the training with the institutionalization of DRM education. However, the training and re‐training of practitioners like emergency responders (S&R), fire fighting, first medical aid, etc. shall continue for regular updation of new advances and to keep the personnel upto mark in their fitness to the job. ii. Specialization‐cadre on DRM: In order to raise specialized cadre of DM professionals, a 2‐5% of Civil service (IAS, IFS, IPS, IES, IMS, ISS, etc.) officials need to be identified for induction to the specialization cadre of DRM after they undergo a specialization course on DRM at a Central University, IIM/IIT/IISER/IIPA or NIDM. A mechanism for the same may be developed by DoPT in coordination with MHRD. iii. Specialization modules of interdisciplinary higher education: Option of higher education aimed at professional development towards specialized functions of DRM or the holistic approach of disaster management may also help in promoting the cadre of professionals to cater to specific needs of DM framework at different levels. iv. Super‐specializations DM modules in research courses: DRM specialization cadre may also be developed among the research based programmes aimed at developing proficiencies of analysis, logical interpretation, futuristic projections and theorem solving. Incentives and fellowships may also be offered for undergoing such courses. v. Specific course programmes: Where needed some specialized needs to be fulfilled by promoting professional development programme in specific areas of intervention, for example, a course on Safety & Reliability Engineering, EIA and Risk Analysis, Emergency Planning, Climate‐change and DRR Strategy, Damage and Loss Assessment, and/or DRM law and policy planning, etc. need to be designed and conducted by the relevant institutions to help raise the professional cadre of specific services in DRM. vi. DM educators and trainers: Pacing towards achieving HR and CD objectives of DRM in India, a cadre of educationists and trainers also need to be raised from the relevant disciplines or preferably from the interdisciplinary areas of studies with 199
vii.
viii.
academic and professional background of blend of sciences, humanities and exposure to technological advances. A national programme on DRM trainer’s development is proposed by NIDM for a period of 5 years to develop a cadre of certified DRM trainers in India. Emergency service managers: As mentioned above, the dedicated cadre of professionals need to be raised in particular for the specific services during emergency response and relief management. This may include Search & Rescue, First Medical Response, Debris Removal, Emergency Logistics, and Management of Relief Operations. Emergency service volunteers: Cadre of trained and dedicated volunteers on DRM related emergency response functions from among the volunteers with NGOs, NSS, NCC, Nehru Yuva Kendras, and other formal or non‐formal and government and non‐ government groups may be raised and kept in network as capacity reserves.
4.4 Prioritization of Training Needs Strategic Approach of DMRR Human Resource Capacity Development (STRAT‐HRD, 2012‐ 17 and beyond, unto 2021): The concurrent strategy of human resource and capacity development plan for Disaster Management and Risk Reduction (DMRR) shall aim at enabling the shift in the prevailing scenario and following six approaches identified: i. Shifting ‘Reactive & Compensatory’ to ‘Preventive & Proactive Culture’ approach ii. Improving ‘Isolated And Compartmentalized’ to ‘Integrated & Holistic’ centric approach iii. Evolving ‘State & Engineering’ centric to broad ‘People & Environment’ centric approach iv. Changing ‘Externality & Assistance’ centric to ‘Local/Regional & Self Reliance’ approach v. Enhancing ‘Training & Command’ to interdisciplinary ‘Education & Management’ approach vi. Integrating ‘Disaster Management’ into academic system, R&D, extension and governance. Key intervention areas for different disasters for their management have been identified from the respective NDMA guidelines, other strategic and research based documents. Following list (Table 1) enumerates the key interventions in different stages of management cycle in reference of common disasters in India. Table 2: List of indicative key functions/ interventions in management of different disasters Disaster type Predisaster Duringdisaster Postdisaster Landslides Slope failure risk assessment, Search & Rescue, Mass land stability, landscape Debris removal, stabilization, geo‐ ecology, slope protection Rehabilitation, bioengineering, bioengineering, Relief, transport/ eco‐ 200
Disaster type
Flooding
Urban flooding
Earthquake
Drought
Cyclone / coastal hazards
Forest fire 201
Predisaster
Duringdisaster
Postdisaster rehabilitation, Warning and road management rehabilitation, alert landscape management. Catchment rehabilitation, soil Evacuation, Search Rehabilitation, & water conservation, & Rescue, Relief – Eco‐ climate‐change adaptation, water & sanitation, rehabilitation, risk analysis, early warning, food and food safety, Crop‐ zoning, resistant housing, waste and adjustments, cropping, river basin environmental Reconstruction management, bank health; Law & order &recovery stabilization, siltation check, control, transport, Community preparedness panic management Heat‐island, urban drainage, Alert & warning, Rehabilitation, solid waste, sewage and run‐ Traffic management, Site clean‐up; off management, land‐use Floodwater relief, Drainage master plan, wetlands, Food, water & improvement, rainwater harvesting, risk sanitation; landscape analysis, alert & warning, environmental regulation and Climate‐change adaptation health ecosystem functions Risk zonation, Building Evacuation, Search Trauma care, design/ structure, Materials, & Recue, Debris Maintenance / Construction/ Safety‐audit, removal, Medical re‐building, Retrofitting. Personal safety response. Shelter Retrofitting, behaviour management Recovery Risk and vulnerability Cropping Crop and analysis, Land & water, adjustments, livelihood Forestry & grassland Irrigation, Water recovery, management, Land‐use use – reuse, Environment – alternatives, Cropping recycling, vegetation, water models, Resistant crops, Soil Environmental & health conservation, watershed, health, Relief – food, management, wetlands & wastelands, Food, sanitation, land‐use fodder & fuel storage, medicine, Climate‐change adaptation, employment insurance Coastal protection, mangrove Alert & warning, Rehabilitation, and coral reefs, Dune and Communication, Replanting trees sand flora, Erosion control, Response S&R, and gardens, Sewage and waste Medical, relief – Sustainable management, cyclone Water, food, recovery. shelters, housing design, sanitation, debris, preparedness & waste management communication Fire‐weather assessment, fire Fire alert, Warning Loss reporting,
Disaster type
Predisaster risk mapping & rating, Litter management, Water & climate, Planning, Preparedness, Community engagement
Chemical
NBC
Pest attack
Epidemics
Railway accidents
Stampede
202
Duringdisaster
Postdisaster and communication, relief/ Fire fighting, compensation to Incident affected people, management, Incentives, Community Recovery involvement Warning, Accident analysis, Evacuation, Incident Fault tree, Relief response, Clean‐up and operation, Plan compensation, improvement, Litigations, Cause Coordination, rectification, Accident reporting Audit.
Land‐use & Site assessment, multi‐hazard risk analysis and mapping, Enviro‐legal compliance, HAZOP/HAZAN, DMP/EMP, Audit, Mock‐drill, preparedness, Public awareness, On‐site – Off‐site, DDMP coordination, etc Risk profiling, Mass Shielding, seizing & awareness, Capacity mapping, source control, Institutional Alertness, etc. Detection – protection, decontamination, Panic management.
Effects assessment, Relief, compensation, Litigations, Community resilience and peace. Pest weather risk assessment, Control of pest Relief and Risk reduction – infestation spread and survival, compensation, check, People’s alertness, Damage Future planning. Plant protection, remediation. Preparedness. Water & waste management, Cause identification Relief and disease prevention, source – source check, compensation, mapping and control, Alert Spread control, Future planning and counter capacity, Treatment of and Immunization. affected, environmental‐ Remediation. health. Techno‐managerial Search & Rescue, Accident improvement, hazard & risk Coordination with investigation, analysis, signalling, local/district Litigation, communication, Accident government, penalties, prevention, Planning, community, medical Incentives, Relief, Emergency communication & response Compensation, response van System recovery People management, Site control, Medical and other information control, law and dislocation relief, food, safe order, planning, awareness relocation of people, return home, etc. information check, panic control, aid.
Disaster type
Predisaster
Duringdisaster
Inter sectional areas in all disasters
Disaster risk analysis, Safety/ Risk auditing, Socio‐ economic, Environmental & health impact assessment, DRR strategy and DM planning, integrating DRR with environment/NRM, housing and infrastructure development, Insurance; Capacity development & education, Legal and policy aspects.
Situation & need assessment, Impact (damage & loss) assessment, Rapid EIA of disasters, Social & Environmental needs assessments, System coordination, Incident Response System.
Postdisaster Damage and Loss Assessment, Sustainable reconstruction and recovery; Preventing secondary risks; Future DRR actions, Law and policies.
Looking at the various aspects of knowledge, skills and motivations required in promoting the culture of safety, prevention and preparedness for effective disaster management environment in the country, the priority areas of education and training need to focus on the following: 4.4.1 Training Training in disaster management in India has taken a pace during last decade. However the programmes, targets and contents were not strategically planned. Training in DM needs to be in balance between need and supply driven. On one hand, it has to consider the needs of the target group and stakeholder as realized by them based on their own understanding. However, the training strategy and scope should not miss out the advances, research and strategic recommendations and emerging approaches at international levels as well. Thus, mode of local diagnostic inputs but integrated approach of remediation may work well in addressing the challenge. Training shall target for the following capabilities: i. Interdisciplinary proficiency of disaster related assessments, planning, coordination, implementation and monitoring, DRR approaches, and addressing emerging challenges. ii. Department specific/sector specific functions in disaster management, e.g. finance, housing, water, sanitation, land, health, law & order, agriculture, forestry, industry, infrastructure, etc. iii. Response specific training for Search & Rescue, debris removal, first aid, etc. under effective incident command mechanism iv. Relief management including planning and managing shelter, water & sanitation, environmental health, food, psychosocial and special needs, rehabilitation, etc. v. Analytical and assessments approaches and skills including risk and vulnerability analysis, damage/loss assessment, EIA, mapping and information support to planning and decision making. vi. Training of faculty members (teachers, trainers) on DM & DRR curriculum design, notes and methods, module development and course delivery with input on DM concept, objectives and scope of contents. Training approach and methodologies may include the following: 203
i. ii. iii. iv. v. vi. vii. viii.
Probationers/Induction Training (at Central/State Civil Services – Administrative, Forests, Revenue, Economic, Statistical, Medical, Railway, etc.) Practical Training (training to standard job performance – S&R, police, medical, laboratory and analysis, survey, mapping, etc.) Refreshers (in‐service) or Orientation Training (mid‐career training, promotional training) On‐line (web‐enabled) Training Blended Learning (Online+face‐to‐face) Educational Training (professional advancement courses – B.Tech. / Diploma, Masters, Research degrees) On‐job Training (training in the form of learning by doing at work/practice) Interactive Training (Mutual learning peer‐to‐peer in a working group)
Table 3: National Capacity Development (Training): Institutional Framework Institute/ Areas of intervention Activities level Organization I. National DM & DRR Approaches, Integration Training need analysis, Institute and mainstreaming, Adaptation; Development of training of Educational, training & research design, modules / manual and Disaster needs and strategies, Documentation, toolkits, Diploma and higher Managem Policy analysis and law, Planning, level programme on ent Strategic and analytical tools, interdisciplinary curriculum of International, regional & institutional disaster management. cooperation, Human resource National/ international and planning, Interdisciplinary state levels. coordination, etc. II. National / Disaster Risk Management Training Short courses and Orientation Regional and Awareness, Culture of safety and for School Principals, Teachers Science prevention, etc. and School Volunteers, Centre(s) Members of Eco‐club, etc. III. National Safety and risk reduction in technical Short courses and Orientation Institutes education / institutes, lab safety, for College/School Principals, of electrical and chemical safety, Teachers and Demonstrators. Technical earthquake safety, pandemic control, Technical staff, Members of Teachers disaster risk reduction, awareness, etc Eco‐club, etc. Training IV. National Safety risk analysis, multi‐hazard risk Diploma course on Safety Risk Labour reduction and emergency planning, Management, Occupational Institute culture of prevention and health & Safety, Response and preparedness, coordination, preparedness, Short‐courses Regional Occupational health & safety, etc. for Govt. officials, etc. Labour Institutes V. Academic DM & DRR Approaches, Integration University Department Heads/ Staff and mainstreaming, Adaptation; Deans, College/ Teachers, College(s) Educational, training & research Technical Staff, etc. – Zonal/
204
Institute/ Organization in Universiti es / Sponsore d Orientatio n program mes in University Departme nts VI. Indian Institute of Technolog y (IITs) / VII. Indian Institute of Managem ent (IIMs) / Indian Institute of Science Education & Research (IISERs) / IISc Bangalore VIII. National Institute of Food Technolog y & Managem ent IX. Institute of Economic Growth
205
Areas of intervention
Activities level
needs and strategies, Risk analysis and impact assessment, Regional and local cooperation, Planning and preparedness, Role of NSS, NCC, Infusing DM and DRR into higher education, etc.
state level courses under UGC refresher/orientation course under environment studies and sponsored by other Ministries – NDMA/MoEF/DST, etc.
DM & DRR Approaches, Integration and mainstreaming, Adaptation; Educational, training & research needs, mitigation strategies, Risk analysis and impact assessment, Mutli‐hazard risk analysis and management, EIA, Auditing, Chemical disasters, Climate‐change, Coastal and forest related disasters, Disasters related with water, sanitation and health, waste management, climate‐ change; Law & policy, vulnerability, Planning & management, etc.
Training of Faculty members of Universities/ Management / Technical Institutes, Senior officials / executives from Government, Corporate or NGOs, Professional and management development courses, etc.
Disaster risks related to food insecurity and food safety, Risk analysis, Disaster risks during processing, transport, storage and use. Risk reduction, Food management during disasters and emergencies. Role of policies and legislation in disaster risk reduction, economic evaluation of environmental impacts of disasters, natural resource policies and DRR, disaster impact assessment, financial instruments of DRR, Environmental statistics for disaster
Training to Food, Environment and Agriculture sector officials, Traders, Disaster managers, etc.
Training to officials of Indian Economic Service, Indian Statistical Service Officials; Faculty members of economics, environment, agriculture, geography, management, etc.
Institute/ Organization X.
XI.
XII.
XIII.
XIV.
206
Indian Institute of Forest Managem ent Bhopal /
Areas of intervention management. DM & DRR Approaches, Integration and mainstreaming, Adaptation; Educational, training & research needs and strategies, Risk analysis and impact assessment, Forestry sector & disaster management, Forest fire management, etc.
Forest Research Institute, Dehradun NDMRRI DM & DRR Approaches, Integration (DMI and mainstreaming, Adaptation; Bhopal) Educational, training & research needs and strategies, Risk analysis and impact assessment, Mutli‐hazard risk analysis and management, Industrial disasters, Climate‐change and related disasters, Coastal hazards and risk management, mining and forest related hazards, Housing and DRR, etc. National Disasters related with water, Environm sanitation and environmental‐health, ental waste management, food safety, Engineeri climate‐change; Management of these ng during disasters and emergencies, Research EIA, Risk analysis, Auditing, their Institute infrastructure and recovery planning. (previousl y Central Public Health Institute), Nagpur National DM & DRR Approaches, Integration Institute and mainstreaming, Adaptation; of Rural mitigation strategies, Risk analysis Developm and impact assessment, Mutli‐hazard ent risk analysis and management, Climate‐change and natural resources related disasters, Food security and livelihood issues in disaster management, rural institutions and
Activities level Training of IFS Officials, State Forest Service Officials, Faculty members/Scientists in forestry/ environment, S&T, agriculture institutes, etc.
Training of Government officials from Ministries/departments – DM, environment, revenue, agriculture, forestry, water resources, rural development, etc. and faculty members from institutes in the above fields, Executives from public/private sector industries, etc. Scientists/engineering and planners in Government/ outside, NGOs, Disaster managers, and Faculty members from related institutes, Officials from pollution control board, water supply, health, DM, etc.
Training of officials from Government department – Rural development, water, environment, land‐use, agriculture, etc. and faculty from Institutes of Government and outside, NGOs, PRIs, etc.
Institute/ Organization XV.
XVI.
XVII.
XVIII.
XIX. 207
Areas of intervention
community participation in DRR. Indian DM & DRR Approaches for Agricultur agriculture, food and natural e resources, Integration and Research mainstreaming, Climate change Institute adaptation; mitigation strategies, Mutli‐hazard Risk analysis and impact assessment, Agro‐chemicals, GMOs, biotech and microbial disasters, Coastal and forest hazards; Plant protection, land‐use, rural livelihood and DRR, etc. Lal DM & DRR Approaches, Integration Bahadur and mainstreaming, Adaptation; Shashtri planning needs and strategies, National Coordination, Strategic and analytical Academy tools, regional local cooperation, of Human resource planning, ground Administr action evaluation and monitoring, ation disaster reporting, institutions, Incident management, etc. Indian DM & DRR Approaches, Integration Institute and mainstreaming, Adaptation; of Public Educational, training & research Administr needs and strategies, Risk analysis, ation EIA, Cooperation, Planning and preparedness, Infusing DM and DRR into higher education, environment and development, Environmental law and policy role in DM, Policy analysis and governance for DM, etc. Centre for DM & DRR Approaches; Integration Disaster and mainstreaming, Risk analysis, Managem damage assessment, Climate change ent (in adaptation and mitigation strategies, Central Financial strategies, Climate‐change, Universiti Coastal and forest related disasters, es) Auditing, Chemical disasters, Urban risks, Disasters related with water, sanitation and health, waste management, EIA, Law & policy, vulnerability, Planning & management, , community participation, Psychosocial care, etc. National DM & DRR Approaches for
Activities level Training of officials of deptt. – agriculture/ forestry, land‐use, environment, KVKs, WALMI, faculty of related institutes/ colleges, NGOs, etc.
Training of IAS officers (all levels) and other Civil service officers, and faculty members in Administrative Training Institutes at states/UTs, etc.
Training of officials from Central/State Government, Corporate, Public/private sector, NGOs, and faculty members from Institutes /Universities; APPA participants, Elected members, Civil service officials, Scientists and Technologists from Govt. Institutes/Departments, etc. Professional training courses – Diploma and Post‐PG courses; Training to Faculty members of Training institutes/colleges and Universities, NGOs, Corporate, Govt. departments, etc.
Training to Faculty members of
Institute/ Organization Remote Sensing Centre, Hyderaba d / XX. Indian Institute of Remote Sensing, Dehradun
Areas of intervention
Activities level
agriculture, food and natural resources, housing; Integration and mainstreaming, Climate change adaptation; mitigation strategies, Mutli‐hazard Risk analysis and impact assessment, Coastal and forest hazards; land‐use and DRR, using principles and application of space technology, multi and hyper spectral remote sensing, Geo‐Informatics application, data integration and presentation for decision support system, web‐enabled systems of event reporting, planning, etc.
Training institutes/colleges and Universities, NGOs, Corporate, Govt. departments, etc., Professional training courses – Diploma and certificate.
TRAINING Z
IITs / IIMs IISERs IISc
PSSIVE
NCERT
EDUCATION
UGC
ICSSR
AICTE
NIRD
IEG
DoPT
NDRFA
LBSNAA
IGNFA
MoES
MoST
MoEF
ICME
ICFRE
ICAR
GSI
CSIR
IIPA
NIOT
DBT L
MHA
IISSM
DST
NCDC
Planning Commission
MHRD
TIFAC
NIDM
NDMA
IIRS
IARI
GBPI HED
DMI‐B
EPTRI
RESEARCH
Figure 4: Institutional mapping for education, training and research in DM
4.4.2 Education ‘Education’ component of the capacity building plan will encompass the following: i. School education ii. Basic college education iii. Higher education (educational training) iv. Non‐formal education i. School education: StrengtheningDM education at schools aims at basic DM awareness and sensitization curriculum across other subjects of school education in infusion mode especially in 208
foundation courses, environmental studies, geography and within cultural activities and science promotion projects like NGC, eco‐clubs, etc. It shall have following strategies: a) School safety and disaster management system at schools levels – integration with school affiliation and development mechanism. b) Provisioning and implementing safety audit in schools including evaluation of teachers, staff and student’s awareness and preparedness. c) Provisioning DM and DRR related contents across the course of studies starting primary education upto middle school in infusion model to account for around 2‐5% of the overall learning in each standard. d) Provisioning DM and DRR as integral component within environment and value education module of teachers training (B.Ed., D.Ed., L.T. and M.Ed.) courses. e) Integrating disaster safety and emergency preparedness issues with the school eco‐ clubs and National Green Corps’s activities and maintaining activities report for audit. ii. College level Basic Education: Targetingundergraduatestudents largely aims at promoting the culture of aware and prepared citizen who can also contribute to the national and community efforts of disaster risk reduction and emergency preparedness. This will also promote the section to develop a motivation for future higher studies leading to professional contribution towards any specific aspect of DM. a) Optional/elective paper on DM in all undergraduate studies in all Universities and colleges and/or integration with relevant compulsory courses. b) Customized study units on DRR and DM with discipline relevant topics across subjects like, biology, chemistry, geology, geography, economics, psychology, agriculture, medicine, pharmacy, ecology, forestry, home science, engineering, etc. at undergraduate basic, professional and vocational studies. c) Provisioning Teachers Refresher course and Orientation programmes at Academic Staff College (at least one such course every year to focus on DM and DRR). iii. Higher and professional education: Higher studiesin disaster management and DRR shall aim largely at developing specialized professional capabilities in the section of qualified citizen to contribute to the functions of disaster management, many of them opting it as a career option as well. Interdisciplinary background with blend of sciences and humanities will be useful for DM planning and coordination functions whereas specialization in professional, technical and allied studies institutions shall cater to the need of specific functions within DRR and DM. a) Interdisciplinary full courses at Certificate or Diploma level programme in DM and DRR with inputs from relevant disciplines of teaching. b) Over and above education in DM and DRR as specialization within the interdisciplinary areas of higher studies like environmental studies, social work and public administration. c) Specialization/optional and full, research based special courses (like M.Phil., Ph.D.) on DM and DRR area of study. d) DM specific professional development courses for delivery of a specific DM function (for e.g., Multi‐hazard risk assessment; DRR Strategic Planning; Safety and reliability engineering, Climate‐change and DRR, Emergency medicine, WATSAN in 209
Emergencies, etc.) as Diploma/Degree/PG degree, indicated in Table 4.
NIDM shall be establishing an Academic Facilitation Centre (AFC) for coordinating and networking with the University Grants, Ministry of Human Resource Development, Academic Staff Colleges and other relevant national, state and international agencies for promotion of higher education on disaster management and to develop training module(s) for University/college Professors and organize/conduct training of teachers (ToT) courses on UGC module on disaster management. NIDM shall conduct specialised M.Phil. level course on disaster management, besides collaborative Doctoral Programme with IIMs and Universities. Table 4: Course options and suggested key contents for DM module in Interdisciplinary schools / faculties in Universities/Institutes Institutes/ Course/ Related sub Course Contents Key Words Faculty Modules disciplines Hazards and disasters; 1) Environmental Engineering Safety & Engineering Construction materials and Reliability & Tech. Engineering 2) Structural / housing, design, Seismology, Institutes construction (B.Tech.), Safety and failure risk analysis; (NITs, IITs, Optional engineering mechanical, electrical and Tech. module on 3) Industrial chemical and technological University, Engineering safety, dam safety, drainage, DM in etc.) 4) Mechanical wastewater, climate control, M.Tech. Engineering green building, railway safety, 5) Geology/Geo‐ risk communication, Signalling technology and alarm, Safety automation, Emergency Response, Retrofitting & construction, mainstreaming into development, etc. PG and 1) Applied/ Human Natural and anthropogenic University M.Phil. Ecology & Law hazards, climate‐change, Schools of Specializatio 2) EIA , Auditing & chemical accidents, EIA in DM, Environment n Modules, Emergency Plan socio‐economic aspects, al Studies, Post PG 3) Disaster risk vulnerability, mitigation, land‐ FRI, IARI. Diploma in management use, sustainable agriculture, DM 4) Abiotic/geological coastal management, impact environment minimization, relief shelter, 5) Environ. Mgmt, water & sanitation, waste mgmt, Tech. Planning preventive health, food safety, 6) Climate‐change damage & needs assessment, management reconstruction, green building, 7) Natural resource green recovery, livelihood, Management rehabilitation, role of environmental & NRM law & policies, mainstreaming into 210
Institutes/ Faculty
Course/ Modules
Related sub disciplines 1) Welfare (MSW) 2) Master of Business Administration 3) Developmental / environmental & social economics 4) Regional planning & Geography
University Schools of Social Work & Management Studies, ICSSR, Institutes, etc
Specializatio n Modules in MSW, MBA, M.Phil.
National Law University, Law Schools/ Institutes/ Colleges
Modules in 1) Environmental Diploma, LLB, Law Sub‐ 2) Human Rights specialization Law in LLM. 3) Business & Corporate Law
Medical & Health Faculty (PGIs, Medical Institutes, Colleges, etc)
Emergency Medicine; DM Mod (PG), Module in MBBS, Optional in Diploma, PG courses
1) Community Medicine 2) Environmental‐ health (PSM) 3) Orthopaedics 4) Trauma‐care 5) Critical Care Medicine
Course Contents Key Words development, etc Environmental, technological and security related hazards and disasters, vulnerability concept and components, disaster risk reduction, climate‐change, housing, ecological risks, fiscal instruments, insurance, disaster relief, psychosocial and trauma care, gender issues and care of old, women and children, economy of social & environmental impacts and recovery, business continuity, law & development policies, mainstreaming into development, etc. Hazards and disasters, concept of vulnerability; environmental and climate‐change, land‐use; role of environmental jurisprudence, EIA and natural resource laws in DRR, PIL, suo moto directives on environment and disasters, liability, insurance, compensation laws; green tribunal, Rights to life, health, environment, etc. duties of state and citizen, Case laws, etc. Natural, anthropogenic technological hazards and security threats, health vulnerability, Injury, Trauma risk reduction, Relief, GMOs and risks, food safety, water borne risks, resistance & disease management, climate‐change, bioterrorism, pandemics, health disasters, waste management, water & sanitation, environmental health in disasters, epidemiology, etc.
iv. Nonformal education: Targeting non‐formal education to infuse and inculcate DM awareness and culture of safety 211
and prevention opens a wide window of programmes and activities at different levels. These may include – Sarva Shiksha Abhiyan, Aanganwadi, AASHA, Adult education, Open Schooling, National environmental awareness campaign, etc. to include across the components of disaster risk knowledge, mitigation and preparedness. Univ./ NGC College DDMA DM & RR NGO KVK Committee District DRMO Paryava ran ULB Vahini Industry DRDA Association Figure 5: District level institutional network for DM related capacity development 4.4.3 Training and Capacity Development Framework at District and State levels Local solutions and regional/district level strengthening is most important in disaster risk reduction strategy integration with other district level plans, developmental planning process, environmental action plan, natural resources, infrastructure and other sector plans, under broad framework of integrated district planning. In order to enhance DM and DRR capacities at local levels, an institutional framework is proposed at district level as well. In present times the progress in technological and information system advances, network of expertise with educational institutes like degree and post‐graduate college, NGOs, etc. can be better organized to help promote the culture of prevention and safety at all levels. The HR and capacity development organization at district level may involve the following: i. District Disaster Management Authority ii. Disaster Management Committee iii. Disaster Management Office iv. Industrial Association v. University/Colleges vi. NGC District‐lever Trainers vii. District Paryavaran Vahini viii. NGOs ix. Urban Local Bodies x. Krishak Vigyan Kendra xi. District Rural Development Agency (Training Unit)
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SIRD State Forest Institute State Academic Training Staff Institute College WALMI Relief / NSS DM &RR State DM DM Science, Coordinat Studies Tech. & Secretary Centre ion Centre Environment Council State NCC Regional DISASTER SCHOOL OF Planning Battalion/ Soil & MANAGEMENT ENVIRONMENT STUDIES Board Unit AUTHORITY OF THE AT CENTRAL UNIVERSITY Water Trg. STATE GOVERNMENT Institute OF THE STATE State State DM & University DRR Chapter ‐ DM Committee Committee NSC Town & Country Planning Figure 6: State level institutional framework for DMRR HR and capacity development At a strategic level, the role of state disaster management HR and CD framework shall be of great significance in mainstreaming disaster risk reduction into state policies and plans across different sectors, higher education, financial mechanisms and technological applications. There need to be a close integration of disaster management training and education (including research) framework at the state level. This integration will be able to support the professional support and knowledge inputs to the planning and implementation of DRR programmes as well. DM centre at a University shall extend important support to the educational development and also professional training towards developing skilled human resources for catering the needs of DM and DRR functions. DM Centre established with the support of Central Sector Scheme of 13th Finance Commission grant or proposed with the state support need to be sustained by mainstreaming in the non‐plan budget of the host institute along the other faculty/centres of environment, urban or health management, etc. Besides, the DM Centre needs to develop close coordination with other institutes in the state. Following are the key components in the proposed state‐ wide framework. (a) State DM Authority (Relief/DM Secretary, DM Centre, State DM and DRR Committee) (b) State Planning Board/Dep’t. (c) Town & Country planning Deptt. (d) University (DM Committee, School of Environment DM Centre, NSS, NCC, Academic Staff College)
213
(e) State Institute of Rural Development (f) State Chapter National Safety Council (g) Regional Soil & Water Conservation Training Institute (h) State Forest Institute (i) Science, Technology, Environment & Remote Sensing Council (j) Water & Land Management Institute. 4.5 Implementation Strategy The Human Resource plan has been formulated as an effort to provide an integrated and a wholesome approach to Capacity building initiatives in the country. As Capacity Building is a cross sectoral issue, cutting across all sector, all levels of functionaries and through the whole gamete of disaster management cycle of various disasters, it requires multi‐pronged approach. Further, capacity building is much more than training and hence involves human resource development, organizational development and development of an institutional and legal framework. Every individual, community and organization has some inherent capacity which needs to be acknowledged and further developed. Therefore, focus is on Capacity Development as a process whereby people, organizations and society as a whole unleash, strengthen, create, adapt and maintain capacity over time. Capacity Development Framework is an integrated framework that involves all the sectors and stakeholders at all levels in relation to all hazards. Multi hazard includes all the hazards confronting the coastal areas. Multi‐sector involves all the stakeholders involved with the management of risks in all the phases of disaster management cycles, which include various branches of the government, scientific, technical and academic organizations, civil society, media, corporate sector, community, family and even individuals. Multi‐level implies regional, national, provincial and local levels. This widens the scope of capacity development to include a whole range of actors. Although another practical approach for implementation would be to earmark a nodal ministry/ department to be overall responsible and a consortium of various line ministries with the responsibility of formulating and implementing activities as per their niche’ of responsibility. This would further ensure ownership and sustainability to the initiative. And its linkages rooted to the Government of India’s Five year plans, so that it is funded, monitored and evaluated. The options for rolling out the activities as envisaged under the HR Plan have been suggested above which can be opted on need‐ basis. 4.5.1 Guiding Principles Following are the guiding strategies for implementation:‐ 1. Whole capacity building initiatives will focus on strengthening capacity at local level with the “bottomup” approach for DRR activities 2. Strengthening Community skills for taking L0, L1 and L2 level disasters as the HR plan implementation shall give adequate emphasis on “community baseddisaster riskreduction” and preparedness at local levels. 3. HR plan implementation shall adequately address the concerns on gender issues, and special needs of children, disabled, aged, etc. with a holistic framework. 4. Incentivizing training especially in the government sector and reforms in the capacity building sector by bringing corporate and civil society in implementation. 5. The implementation of HR Plan is to be done in PublicPrivatePeople partnership 214
mode 6. Internal and external collaboration will be encouraged for internationally supported projects for capacity building as per of HR Plan implementation 7. Research and Development shall be promoted for incorporating new ideas and dimensions, with specific projects/programme to draw the lessons 8. The disaster management HR strategies shall be linked with the overall objectives of sustainable, environmentally compatible and safe development. 9. The components of proficiency, viz. accountability and responsibility, shall be integral part of HR development strategy. 10. HR & CD shall address the emerging issues like climate‐change, urban risk, livelihoods, ecosystem services, housing, infrastructure, IRS, recovery, analytical and DSS tools, etc. As stated in previous sections, drawing a line dividing training, education and research would be incorrect as there stands lot of overlap in objectives, scope and functions of these areas of CD interventions. Education at higher level itselfis a type of training as it develops professionally competent personnel. Research is a part of knowledge development, involves innovations, monitoring, hypothesis testing and information development, that helps advance education, training and professional practice as well. An schematic of proposed activities, responsibilities and options for identified agencies involved in education and research in the country are given (in Table 5) below: Table 5: Education & Research Promotion Framework Agency/ Education Research Promotion Ministry 1. Department of Induction of core module in Research promotion/support on Personnel & Courses of IIPA and LBSNAA quantification and/or assessment of professional capacities in DMRR Training 2. Ministry of a. Induction of Core Modules/ a. Establishing Chairs in Universities / Human Specialization on DMRR in Institutes and Higher Education Resource the PG and M.Phil. courses at Centre on DMRR at NIDM on for Development IIMs, IIT/IISc/ IISERs conducting and promoting research b. Supporting/ Establishing b. Sub‐allocating research grant on Disaster Management DMRR under environment/inter‐ Interdisciplinary Centres at disciplinary and geography/ IITs/ IISc/ IISERs and Central planning section of ICSSR funding Universities c. Inclusion of disaster risk c. Envisaging dedication management as area of faculty centre/deptt. on DM in the exchange programmes and grants envisioned Indian Institute of under various bilateral and multi‐ Sustainability Science & lateral cooperation, e.g. Fulbright Management fellowship, DAAD, STA, Commonwealth, etc. 3. Universities Supporting Universities for Allocation of grant on research Grants courses/Centre for Disaster related to disaster management as 215
Agency/ Ministry Commission
4. All India Council of Technical Education
5. National 216
Education
Research Promotion
Management as a dedicated dedicated sub‐section of sub‐section of grant environment & interdisciplinary i. under plan grant for studies: environmental / inter‐ i.Major research project scheme disciplinary studies ii.Minor research project scheme ii. under innovation/ iii.Grant/funding for attending research emerging areas scheme conference/seminars iii. under vocational courses iv.Faculty development programme (environment & water Allocation of grant/positions to section) scheme disaster management as dedicated iv. under SAP/CAS and sub‐section of environment & related scheme interdisciplinary section in the: Strengthening DM as sub‐ Scholarships to doctoral and module under UGC post‐doctoral research students compulsory UG module on (e.g. Rajiv Gandhi fellowship, JN Environmental Studies Fellowship for Advanced Studies) Strengthening DM as Faculty Recharge Programme of optional/specialization in the UGC (FRP‐UGC) to support DM. model PG curriculum of Faculty ENCORE scheme of UGC. environmental studies. Strengthening DM as core sub‐ module of syllabus for environmental/ earth studies for UGC / UGC‐CSIR NET for JRF. Allocation of grant/positions to Strengthening DM as sub‐ disaster management as dedicated module under UGC/AICTE sub‐section of environment & compulsory UG module on humanities/ interdisciplinary section Environmental Studies Coordination with Institute of Promoting DM sub‐module Applied Manpower Research and as optional across all B.Tech. National University of Educational disciplines and MBA Planning & Administration for Promoting Safety & research promotion on educational Reliability Engineering as a technology for disaster management. B. Tech. discipline Allocation of grant /funding on Strengthening DM as core disaster management, to sub‐module of syllabus for Universities/colleges : environment and humanities for GATE exam. attending research conference /seminars research support grant for engaging PG / UG students grant for improving laboratory / analytical facilities Development and promotion Research grant to the Universities/
Agency/ Ministry
Education
Council of Education Research & Training
6. Ministry of Environment & Forests
of curriculum contents on disaster management in school education: across all subjects in infused mode core sub‐module in environment / value education in foundation courses Coordination with National Council for Teachers Education, CBSE and State Boards and induction of DM as sub‐module in B.Ed. and M.Ed. courses.
Research Promotion
Infusion of disaster management across national network of National Green Corps (NGC) programme Support to the institutes /Universities on disaster management education on under the Centre of Excellence scheme of grant Supporting/establishing Centre for DM, EcoDRR, Forest Fire, EIA in DM, Sustainability Science, Green‐ recovery, Climate‐change & DM in Universities/Institutes Strengthening Core module on DM in the courses at IIFM, FRI, IGNFA. ICFRE to establish DM education cell and coordinate with state Forest institutes for Module on DMRR
217
institutes on education research in disaster management and its integration / mainstreaming in environment/value education, National green corps programme, Eco‐clubs and science clubs, etc. Conduct and promotion of model study material development on DMRR for schools. Promotion/grant for research on school safety and disaster management system – coordination with NDMA, Deptt. of School Education, KVs, and National University of Educational Planning and Administration. Promotion of DMRR research through allocation of grant under ‘Environmental Research’ scheme and DM related research funding to the Universities/institutes under: ENVIS State of Environment Report Environmental statistics (with CSO) HSMD Climate‐change research (coordination with DST, MoES and Prime Minister’s council for grant allocation to DM research) Coastal zone management Environmental education EIA River Conservation Directorate Himalayan Environment ICFRE grant allocation Research funding from Planning Commission under Environment & Forests Section. Research funding/support from Central Pollution Control Board. World Bank Aided projects.
Agency/ Ministry 7. National Institute of Disaster Management / MHA, NDMA. 8. Ministry of Science & Technology
9. Planning Commission, Govt. of India
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Education One year Orientation course in DM&RR (Post‐PG or M. Phil level) including for in‐service professional/officials
Research Promotion Research grant to NIDM faculty members, Externally funded/ sponsored research, Internship research, Grant to DM Centres in States/UTs.
Promotion of disaster management education DST support to Universities under FIST for infrastructure support – allocation from environment/earth science and biology sections. TIFAC Centres/Chairs on Sustainable development and technology – provision to support to disaster management education DST, CSIR Support for organizing faculty development programme as dedicated allocation from environment section for disaster management and risk reduction DBT support grant for faculty related with disaster management and risk reduction – biohazards, climate‐change, bioengineering, GMOs, etc.
Promotion of research on DM by allocation by DST from: a. SERC scheme grant from environment/earth science section b. Science & Society scheme c. Women Scientists scheme d. NNRDMS scheme/programme e. Support from TIFAC schemes Promotion of research on DM and DRR related aspects by allocation of in‐house research expenditure and allocation of extramural research grant by CSIR: a) CSIR grant scheme (research projects, Research fellowship and associate‐ship, Scientist’s pool) from environment/earth science and biology groups. b) CSIR grant for attending research conferences c) CSIR Seminar grants d) Promoting DM and DRR research in CSIR institutes, like. NEERI, NPL, CRRI, NIO, NGRI, NBRI, ITRI, RRL‐B, CFTRI, etc. DBT grant for research on biohazards, climate‐change, bioengineering, GMOs, bioremediation, etc. Coordination with UGC, MoEF, Coordination with UGC, MoEF, ICAR, ICAR, ICMR, MoST, ISRO, and ICMR, MoST, MoES, CSIR, ISRO and for MHRD for planning & promotion planning and promotion of research of educational programmes in programmes/ grants to Universities/ area of disaster management in Institutes including FRI, IARI, IIMs, Universities/Institutes including IITs/IISERs, etc. and doctoral and post‐ FRI, IARI, IIMs, IITs/IISERs, etc, doctoral fellowships in area of disaster as a sub‐set of research management as a sub‐set of allocation allocation for education. for environmental planning/research.
Key Responsibilities in order to implement different components of this HR and CD plan shall adhere to various agencies including Ministries and organizations/agencies. Follow‐ up and assessment of the overall progress need to be vouched by NDMA and the Ministry of Home Affairs. The implementation schemes need to be drawn in a time‐bound manner (short term: 0‐2 years, medium term: 2‐5 years, and long term: 5‐10 years), in following ways. A. Component 1 (Training): Detailed implementation programme for short‐term, medium‐term and long‐term may to be developed by NIDM in participatory mode using consultative process involving NDMA, Ministry of Science & Technology, Environment, Agriculture, Planning Commission, IIPA, DoPT, ISTM, NCDC, GIZ‐ASEM, NFSC, NIRD, IGNFA, and other national level training institutes. B. Component 2 (Education): Further divided into 3 categories to be coordinated at MHRD: 1) Higher Education: Detailed implementation programme to be developed by UGC by involving interdisciplinary subject experts, Central Universities, IISERs, IISc, Association of Indian Universities, MoEF, DST, Planning Commission, IIPA, PSSIVE, Bar Council, etc. 2) School Education: Detailed programme be developed by NCERT by coordinating with CBSE, ICSE, State Boards, Schools Associations and NGC, KVS, etc. 3) Technical/Management Education: Detailed implementation programme to be developed by AICTE in consultative process involving NITTT, Technical Universities, IIMs, UGC, DST, DGMS, HUDCO, DGFASLI, TCPO, FICCI, CII, etc. C. Component 3 (Research): A Detailed implementation programme for promotion of interdisciplinary applied research to be prepared by the Planning Commission involving a consultative process with Ministries Science & Technology, DST, DBT, CSIR, MoEF, ICFRE, ICAR, ICMR, ICSSR, CSO, UGC, ISRO, DRDO, UNDP, UNESCO, SAARC University, WHO, UNICEF, WWF, World Bank, UN‐IUCN, Lead‐India, etc. The above sub‐plans will enumerate detailing of the implementation plan with phasing of activities and responsible agency with source of financial support. D. International Institutes: Besides these, following international institutions in India may integrate to country’s HRCD efforts in area of DRR, to contribute ultimately to regional capacity. a. SAARC University, Delhi b. WWF Centre for Environmental Law Studies, c. Mahatma Gandhi Institute of Sustainability and Peace (UNESCO), d. UNDP Centre for Human Development e. International Water Management Institute Disaster management education, research and training support may be extended by these international institutions located in India, and the Ministry of External Affairs to coordinate 219
with their parent organizations and the institutions to mobilize support and engagements. E. NDMA Coordinated Research Capacity Development (CRCD): A transparent mechanism of research facility support to the researchers and teachers in the institutes and Universities, Research institutes, and NGOs, can be coordinated in the form of a programme by NDMA. Preference may be given to the applied research utilizing interdisciplinary knowledge, aiming at developing self reliance, sustainable solutions, cost effective ‐ socially and ecologically relevant approaches of disaster risk reduction including innovations, traditional knowledge, policy research, etc. Research provisions need to be open for breakthrough and non‐conventional ideas beyond the known and tested approaches. NDMA funding is in addition to the Research Support network to be detailed by Planning Commission. 4.5.2 NDMA support NDMA will consider the issues like facilitating policy support to the implementation of HRCD plan through a dialogue with Ministry of Human Resource Development by involving NIDM’s proposed Academic Facilitation Centre (AFC) and shall revise its Broad Guidelines for the functioning of NIDM for its strengthening and capacity development at par with other apex institutions in the areas of management or technology (example, IIMs or NITs) in terms of infrastructure, staffing patterns, incentives and motivation to academic staff, and facilities for improving academic performance and quality. 4.5.3 Strengthening of NIDM NIDM is the apex institute of Government of India for capacity building, training, education, research, documentation and policy planning on all aspects of disaster management, originally established by the Ministry of Agriculture in 1995 as a National Centre for Disaster Management at Indian Institute of Public Administration. In 2003 NCDM was upgraded as a National Institute and in 2005 it was mandated for its activities under the Disaster Management Act, 2005 and under the Ministry of Home Affairs. Infrastructure, staffing and institutional capacities of the NIDM need to be strengthened further. Looking to the emerging areas of advances, multidisciplinary nature of disaster management and increased workload and mandates of NIDM, the faculty and infrastructure needs further expansion. NIDM needs to, therefore, an expansion plan and implement with a designated time frame, to develop its capacity at par with an Indian Institute of Management (IIMs) or National Institute of Technology (NITs). Development of library, publication division, conference and outreach facilities, museum, etc. shall be important whereas core human resources need to be improved with adequate incentives, motivation and staffing patterns as similar to either IIMs or NITs. NIDM shall design and conduct M.Phil. level specialised courses in disaster management, besides collaborative Doctoral research programmes jointly with IIMs and Universities. NIDM shall establish chairs on special aspects of disaster management with support of relevant international/national organizations, Ministries or agencies, on mutual interest areas to foster academic advances, research and training on disaster management. A faculty exchange programme shall be developed with a network of international and national institutions for sharing and exchange of expertise and upgrading the knowledge and skills 220
of faculty members of NIDM. NIDM shall work in collaboration with UN agencies, multi‐ lateral institutions, and international organizations with their establishments in India as well, for example, UNDP, UNESCO, WHO, ICIMOD, UNICEF, UNEP, IUCN, WWF, GIZ, ISET, and SAARC University, MG Institute for Peace and Sustainability, UNDP Centre for Human Development, etc. for improving knowledge building and its application to the wider geographical extent in the country and beyond, as per the mandate given in DM Act 2005. As approved by the Governing body of NIDM, it shall constitute its Academic Council and a Research Advisory Committee and shall convene regular meetings to guide, review and promote NIDM’s capacity and deliverables. NIDM is in the process of establishing following specialised centres: Academic Facilitation Centre (for University Education and Trainers Development) DRR Knowledge Centre (for Disaster database/statistics, DRR portal, IDRN, etc.) NIDM Centre on Coastal Disasters Management (to be located along a Central/National Institute in coastal region) NIDM Centre on Hill Area Disasters Management (to be located along a Central/National Institute in Himalayan region) NIDM Centre on Technological Disasters Management (to be located in a Central/National Institute) 4.5.3.1 Strengthening Action Plan of NIDM A detailed Vision Plan for Expansion of Activities and Deliverables of NIDM including strengthening of NIDM in terms of staffing, expertise, professional capabilities, and infrastructure on the lines of Indian Institute of Management (IIMs) for a period of 10 years (beginning 2014) classified into short‐term (0‐2 years), medium‐term (2‐5 years) and long term (5‐10 years) shall be drawn by NIDM through a consultative process involving NDMA and DM Division of MHA, UGC, DoPT, Ministries (HRD, MoES, MoEF, S&T, RD, etc.), IIMs and IISERs/IISc, IIPA, etc. by the year 2013 and will be submitted to Government for implementation. Staffing patterns, academic quality concerns and career advancement of the faculty members and senior staff shall be either as per University Grants Commission guidelines (as per direction of Union Home Minister as Chairperson of NIDM) or as per IIM staffing system. The plan document of NIDM strengthening including staffing and infrastructure on the lines of IIMs shall be developed by December 2013. 4.5.4 Strengthening of State Disaster Management Centres (DMCs) State level Disaster Management Centres, established with a mandate to develop as a state‐ of‐art academic support facility in every state/UTs to extend professional support to the State Disaster Management Authority and State Emergency Operation Centres (EOCs) round the year and in all the phases, i.e. pre, during and post‐disaster management, and capacity building including training, education, documentation/research and policy planning related activities. Central Government, through National Disaster Management Authority, is proposing a Scheme initially for two years, for extending support to the State DMCs through the National Institute of Disaster Management for strengthening in terms of grant for faculty and support staff, training and other recurring expenses. The State DMCs shall be equipped with faculty staff (either on deputation/contract or on regular/non‐plan engagement of the 221
host institute) dedicated totally and round the year for disaster management related activities only. The professional strengths of these State DMCs must include a professional with skills on IT/web‐enabled systems and Geo‐informatics application, besides other faculty members drawn from or allied disciplines of interdisciplinary areas like social work, environment, natural resources management, public administration, etc. Further, State Governments shall draw the provisions to institutionalise these DMCs as a permanent facility to support the State Government and other relevant stakeholders with at least minimum requisite strength in terms of academic and support staffing, infrastructure and recurring expenditures. 4.5.4.1. Capacity Strengthening of State & District EOCs Special emphasis need to be given on strengthening of State and District Emergency Operation Centres. Each State EOCs must has at least 5 full time professional staff, whereas each district EOC must have a minimum of 3 full time professional staff, so that the centre is functional round the clock and all the days irrespective of a disaster situation or not or even on public holidays. The staff appointed/deployed for these EOCs must be dedicated for disaster management related responsibility only and in no case they must be engaged in other responsibilities that they are meant for. EOC staff must regularly coordinate with relevant officials and agencies, state DMCs for update on database, risk scenarios, preparedness related issues, review and update of plans and for capacity building related activities. State Governments shall develop a scheme for the systematic strengthening of State & District EOCs and State DMCs. 4.6 Time frame and Budget Keeping in mind the Capacity Development Framework and scope of activities to be undertaken under capacity building core area, the impact of initiatives for capacity building can be seen on the community only when a united approach of Private sector, Civil Society and the lead partner being the Government, is put forth. Further to streamline the overall efforts under the overarching gamete of Capacity Building, the initiatives have been broadly grouped under four heads, i.e. i. Training ii. Education iii. Research & Education iv. Public Awareness v. Organizational/ Institutional Development Time frame for the implementation of the Human Resource Plan (2013‐2022) has been given in the bar chart indicating the activities, its preparation and actual implementation time‐frame and responsible agencies. 4.6.1 Budget Since the plan envisages a multi‐agency, multi‐sector approach where a number of Ministries and agencies/institutions shall be responsible for implementing different aspects and activities, it would not be feasible to work out the comprehensive budget estimate for HR plan implementation at this stage. Respective Ministries/departments or 222
Institutes shall maintain an allocation of their budget for this purpose. The comprehensive estimate shall be worked in the meetings of the national steering committee for implementation and monitoring of the plan accordingly. 4.6.2 National Steering Committee A national steering committee shall be constituted under the Chairmanship of the Secretary (Border Management) with representation of all key Ministries/institutions and agencies like NDMA, UGC, Ministry of Environment, Earth Science, Agriculture, Water Resources, Rural Development, Human Resources, IIPA, LBSNAA, IGNFA, NPA, NWA, MANAGE, NIRD, etc. which shall meet and review the implementation of the plan and will also suggest if any modifications/amendments required to improve the plan or its activity components. In order to maintain the proceedings and monitoring, a secretariat may be maintained at NIDM for this purpose with adequate professional and secretarial/support staff. The Academic Facilitation Centre at NIDM shall host the National Steering Committee for implementation of National HR and CD Plan. DMRR HRCD Plan Implementation TimeFrame (20122021) Training Higher and primary education Research Public awareness Institution building Activity Timeframe Responsible Particular Agency 02 years 25 years 510 years NIDM 1. Detailing Training Programm e UGC, 2. Detailing Education NCERT, AICTE Programm e Planning 3. Detailing Research Commission Programm e 4. DM in MoEA, MHRD Internatio nal Institutes NDMA 5. Research facility Grant (coordinat 223
Activity Particular ion) 6. Training/e ducation. policy, contents developme nt, modules, ToT 7. DM modules in Probation / Induction Training (IAS, IFS, IES, ISS, ARS, IES, IMS, State Service) 8. Cadre Specializat ion DRR Certificate Course (2‐ 5% from Civil Services IAS, IFS, IES, ISS, ARS, IES, IMS, State Services, etc) 9. Two weeks Module on DRM in APPA course 10. Recognizin g NIDM as institute of 224
Timeframe 02 years
25 years
Responsible Agency
510 years
NIDM
LBSNAA, IGNFA, NPA, IEG, NASA, NAARM.
IIPA, DoPT
MHRD
IIPA, IIMs, NIHFW/PGIs, Central Univ., University in State Capital.
Activity Particular higher and profession al learning 11. Strengthen ing NIDM at par with IIMs/IISER s (and expansion Plan) 12. Quanti fication/as sessment of profession al capacities in DRM 13. Advance Diploma in DRM; Masters course Specializat ion in DRM 14. Coordinat ed research for case study developm ent; and M.Phil. level 1 year interdisci plinary course on DRM. 15. Streng thening 225
Timeframe 02 years
25 years
Responsible Agency
510 years
MHA, NDMA (Action Plan to be drawn by NIDM) DoPT
IISERs, MHRD, UGC, Central Universities
NIDM
UGC, AICTE, MoEF
Activity Particular DRM componen t under Compulsor y UG Environme nt Study course 16. Diploma in DRM, and DRM Specializat ion in Masters Env. Studies course(s) in State Universitie s 17. DRM as Unit syllabus for environme ntal / earth studies for UGC / UGC‐CSIR NET for JRF 18. DRM sub‐ module as optional across all B.Tech. and MBA. 19. Safety & 226
Timeframe 02 years
25 years
Responsible Agency
510 years
UGC, State Deptt. Higher Education
UGC, CSIR, ICAR, DRDO
AICTE, IIMs, NITs
AICTE, NITs
Activity Particular Reliability Engineeri ng as full B. Tech. Course 20. Allocation of grant / positions on DRM in UGC schemes & fellowship s. 21. DRM as core Unit in of for syllabus of environme nt and humanitie s in GATE 22. Allocation of grant on DRM in ICSSR fellowship 23. Strengthen ing DRM in NGC programm e 24. MoEF Centre of Excellence Grant for DRM in Universitie s 25. Grant 227
Timeframe 02 years
25 years
Responsible Agency
510 years
MHRD, UGC
AICTE, IITs / IIMs
ICSSR, Planning Commission
MoEF
MoEF
MoEF
Activity Particular
Timeframe 02 years
25 years
Responsible Agency
510 years
for DRM under Environme ntal Research
26. Grant for DRM under Forestry/C C research 27. Establish Coordinat ion Centre for Risk Assessme nt, Early Warning &Commu nication 28. Strengthen ing DRM course infused across schools studies 29. TIFAC Centre/Ch air on DRM 30. FIST support on DRM study to Universitie s & Institutes 31. Institution 228
ICFRE
MoST with NDMA, MoEF, CSIR, ICAR, IMD, NIH, etc.
NCERT, CBSE, ICSE, KVs.
MoST/DST
DST
NCSRT, CBSE, ICSE, State
Activity Particular alizing DM system and safety audit in schools 32. Raising emergency S&R Cadre – NDRF Academy 33. Raising Emergenc y Response & Relief Cadre profession als 34. Establishi ng Chairs for specialize d studies at NIDM on Mainstrea ming (MoRD), ecoDRR (MoEF), Structural Mitigatio n (SERC‐ DST/TIFA C). 35. Gradual phasing out of In‐ service training on DRM 229
Timeframe 02 years
25 years
Responsible Agency
510 years
Boards
NDMA, NDRF, MHA
NCDC, National Fire College
NDMA
NDMA, UGC, AICTE, DoPT, NIDM (and an independent programme audit team).
Activity Particular
Timeframe
02 years with Induction training, basic and professio nal education (Coordinatio n of efforts, follow‐up, monitoring and evaluation of) TOTAL Phase of Preparation
25 years
510 years
Phase of execution by Responsible Agency 4.7.
Responsible Agency
RECOVERY PLAN
Recovery is the period following a disaster and the community’s early response to that disaster, whereby things return to a new normal. Recovery following each disaster is unique and may last weeks or years. Disasters are never welcome, but they give communities an opportunity to build back stronger. Often, damages sustained in disaster can be prevented from recurring by implementing a long‐term recovery strategy grounded in risk reduction analysis and mitigation. The recovery plan aims at reducing future risk and effectively enables post‐disaster recovery using an integrated disaster risk reduction approach. It is an integral part of risk reduction. In fact, the inclusion of recovery planning in disaster risk reduction signals a shift away from rehabilitation and brings to the fore the interconnection between risk reduction and sustainable development. This shift enables looking beyond realizing the pre‐disaster situation in the spirit of ‘build back and better’ than before. The International Strategy for Disaster Reduction (ISDR) defines Recovery as “Decisions and actions taken after a disaster with a view to restoring or improving the pre‐disaster living conditions of the stricken community, while encouraging and facilitating necessary adjustments to reduce disaster risk. 4.7.1 Recovery objectives 1. Long‐term restoration of public infrastructure, social services, andenvironmental assets damaged by the disaster. 2. Re‐establishment of an adequate supply of housing to replace that which was destroyed 230
and provide safe transitional housing opportunities. 3. Restoration of the economic base of the disaster area(s) and jobs that was lost. 4. Sustainable and healthy redevelopment occurring in disaster resilient land use patterns. 4.7.2 Disaster Recovery 4.7.2.1 Disaster recovery is the most difficult and long‐drawn disaster management phase. The three terms rehabilitation, reconstruction and recovery are often used interchangeably, but they aim to specifically meet the different types of objectives. Term Meaning Rehabilitation It is the process of assisting the disaster affected to gain control of their lives by improving their physical, environmental, social well‐being and psychological limitations Reconstruction It is the process of rebuilding the destroyed physical structures in disaster affected areas to better the lives of the affected Recovery It is the process of healing the wounds of the affected in such a way that they are able to build resistance to future disasters. The process aims at establishing interlinkages with development programmes for long‐term sustainability 4.7.2.2 Disaster Recovery Phases The Disaster Recovery Phase begins once all life‐safety issues have been addressed and initial damage assessment has occurred. This phase is divided into three stages: the Short‐ Term Recovery Stage, the Mid‐Term Recovery Stage and the Long‐Term Recovery Stage. 1. ShortTerm Recovery Stage During the first hours and days after an emergency event [Short‐Term Recovery Stage], the principal objectives are to restore the necessary structural [facilities, critical systems/ infrastructure, roadways and grounds] and non‐structural, (power, water, sanitation, telecommunications). 2. MidTerm Recovery Stage In the first weeks after a major emergency event [Mid‐Term Recovery Stage], the principal objectives are to ensure the restoration of the all pre‐identified business functions considered to be critical to normal livelihood operations. 3. LongTerm Recovery Stage During the Long‐Term Recovery Stage, the principal objective is to resume normal operations integrated with long term development. It is during this stage of recovery that the emergency phase gets deactivated, and pre‐disaster structure of governance and delivery comes into being. 4.7.2.3 Components of Recovery Planning 231
PDNA
Pre-Disaster Planning Monitoring and 4.7.2.4 Government of India Initiatives
Recovery and
Long term Reconstruction: The Government of India has constituted a Cabinet Committee under the Chairmanship of Prime Minister, for providing broad guidance to re‐construction and rehabilitation efforts in Uttarakhand and to take all necessary decisions in this respect. An Inter‐ Ministerial Group (IMG) has also been set up under the chairmanship of Cabinet Secretary for drawing up a time bound Action Plan for supporting rehabilitation and reconstruction efforts in Uttarakhand through involvement of various agencies of the Central Government in the post‐flood situation. Cabinet Committee of Uttarakhand has met on 31st July and taken decisions regarding providing appropriate assistance to the State Government for restoring and protecting Kedarnath temple. IMG has also met regularly and monitored the progress of actions being taken by the central Ministries/ Agencies in not only for the immediate relief and restoration, but also for the reconstruction and rehabilitation of the State Infrastructure and for preparing an action plan. Part of the financial support for the reconstruction package is being worked out as an externally aided programme, with the involvement of the World Bank, Asian Development Bank and International Fund for Agricultural Development.
4.7.3 DISASTER RECOVERY FRAMEWORK (DRF) The Disaster Recovery Framework defines how agencies will more effectively organize and operate to utilize existing resources to promote effective recovery and support communities affected by a disaster. It is also written for Government executives, private sector and Non‐Governmental Organization (NGO) leaders, emergency managers and community development professionals. Recovery begins with pre‐disaster preparedness and includes a wide range of planning activities. The DRF clarifies the roles and responsibilities for stakeholders in recovery, both pre‐ and post‐disaster. It recognizes that recovery is a continuum and that there is opportunity within recovery. It promotes a process in which the impacted community fully engages and considers the needs of all its members. 4.7.3.1 Recovery Continuum: The recovery process is best described as a sequence of interdependent and often concurrent activities that progressively advance a community toward a successful recovery. However, decisions made and priorities set early in the recovery process by a community will have a cascading effect on the nature and speed of the recovery progress. Figure 1 indicates how response and recovery functions are related in example sectors. 4.7.4 REHABILITATION Rehabilitation, an integral part of disaster recovery; other being reconstruction, could be defined as an overall dynamic and intermediate strategy of institutional reform and reinforcement, reconstruction and improvement of infrastructure and services; aimed towards support to the initiatives and actions of the concerned populations in the political, 232
economic and social domains, as well as reiteration of sustainable development. Generally, rehabilitation package includes total reconstruction of damaged physical and psychological infrastructure, as well as economic and social rehabilitation of the people in the affected region. The rehabilitation is classified into the following: 1. Physical Rehabilitation 2. Social Rehabilitation 3. Psychological Rehabilitation 1. PHYSICAL REHABILITATION Physical rehabilitation is a very important facet of rehabilitation. It includes: Reconstruction of physical infrastructure such as houses, buildings, railways, roads, communication network, water supply, electricity, and so on. Short‐term and long‐term strategies towards watershed management, canal irrigation, social forestry, crop stabilization, alternative cropping techniques, job creation, employment generation and environmental protection. Rehabilitation of agriculture, artisan work and animal husbandry. Adequate provision for subsidies, farm implements, acquisition of land for relocation sites, adherence to land‐use planning, flood plain zoning, retrofitting or strengthening of undamaged houses, and construction of model houses. 2. SOCIAL REHABLITATION Social rehabilitation is also an important part of disaster rehabilitation. The vulnerable groups such as the elderly, orphans, single women and young children would need special social support to survive the impact of disasters. The rehabilitation plan must have components that do not lose sight of the fact that the victims have to undergo the entire process of re‐socialization and adjustments in a completely unfamiliar social milieu. Thus, this type of rehabilitation would include various activities that you may take up: Resurrection of Educational Activities
Give constant counselling to teachers and children Encourage children to attend the schools regularly Provide writing material, and work books to children Make children participate in all activities pertaining to resurrection of normalcy in the school Try to inculcate conducive attitudes to enable the students to play a positive role in self‐ development Establish village level education committees Identify local groups that could conduct smooth functioning of education activities
Rehabilitation of the Elderly, Women and Children
Identify familiar environs to rehabilitate elderly, women and children Make efforts to attach destitute, widows and orphans with their extended family, if that is not possible then identify foster families Organize regular counselling to strengthen the mental health of women and children Initiate various training programmes to make the women economically self‐sufficient
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Give due attention to health, nutrition and hygiene in the long‐term rehabilitation package for women and children Activate/reactivate the anganwadis, day‐care centres, and old‐age homes within the shortest possible time Set up at least one multi‐purpose community centre per village Make efforts to build residential female children homes at the block level Set up vocational training camps to improve the skills of orphans and children Create self‐help groups
3. PSYCHOLOGICAL REHABILITATION Another crucial dimension of disaster rehabilitation is psychological rehabilitation. Dealing with victim’s psychology is a very sensitive issue and must be dealt with caution and concern. The psychological trauma of losing relatives and friends, and the scars of the shock of disaster event can take much longer to heal than the stakeholders in disaster management often realize. Thus, counselling for stress management should form a continuous part of a disaster rehabilitation plan. Efforts should be made to focus more on: Psycho‐therapeutic health programmes Occupational therapy Debriefing and trauma care Tradition, values, norms, beliefs, and practices of disaster‐affected people 4.7.5 POST DISASTER NEED ASSESSMENT Post‐Disaster Needs Assessment is a synthesis of Damage and Loss Assessment and human recovery needs assessment. It typically includes the recovery and reconstruction framework that guides the post‐disaster recovery strategy. A PDNA is a government process that encompasses at least two recovery and reconstruction perspectives: (i) (ii)
the valuation of damages and losses to estimate economic recovery and reconstruction needs, and the identification of human impacts, also termed human recovery needs assessment (HRNA). The HRNAs are a combination of approaches to measure the primarily qualitative impacts of a disaster on affected sectors and cross‐cutting areas (gender, youth, environment, disaster risk reduction, governance, etc.)
The two perspectives are complimentary and both are required to support the identification and selection of response options covering interventions across the recovery calendar of a recovery framework, i.e. from early to long‐term recovery. In a PDNA, the challenge for assessors is to provide data and analysis to elaborate the recovery framework so that it provides decision makers with a strategy for disaster risk reduction through recovery and reconstruction initiatives.
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RECOVERY CONTINUUM – DESCRIPTION OF ACTIVITIES BY PHASE PREPAREDNESS SHORT TERM INTERMEDIATE LONG TERM ONGOING DAYS WEEKSMONTH MONTHSYEARS PRE DISATER SHORT TERM LONG TERM INTERMEDIATE PREPAREDNESS RECOVERY RECOVERY RECOVERY Examples Examples include: Examples include: Examples include: include: Mass Housing Housing Care/Sheltering Provide accessible Develop permanent Pre‐disaster recovery Provide Integrated interim housing housing solutions planning mass care and solutions Infrastructure emergency services Debris/ Rebuild Mitigation planning and Debris Infrastructure infrastructure to implementati Clear primary Initiate debris meet future on removal transportation community needs routes Plan immediate Community Business infrastructure repair Implement capacity and Business and restoration resilience Establish temporary economic building and interim revitalization Business Support infrastructure to strategies Conducting reestablishment of support business Facilitate funding to disaster reopenings business where business rebuilding preparedness Reestablish cash appropriate exercises Emotional/Psycholo Support the flow gical Partnership establishment of Follow‐up for Emotional/Psycholo building business recovery gical ongoing counseling, Articulating one‐stop centers behavioral health, protocols in Identify adults and children who benefit Emotional/Psycholog and case disaster plans from counseling or ical management for services to Engage support behavioral health services meet the services and begin networks for ongoing Public Health and emotional treatment care Health Care and health Public Health and Reestablishment of care needs of Public Health and Health Care Health Care disrupted health adults and Provide emergency Ensure continuity of care facilities children and temporary care through Mitigation Activities medical care and temporary facilities Implement establish mitigation strategies Mitigation Activities appropriate Inform community surveillance members of protocols opportunities to build back stronger Mitigation Activities Assess and
235
understand risks and vulnerabilities
Abbreviations AICTE AIIMS APELL ASCI ATI B. Tech CBSE CSIR DMI DoPT DRR EIA EPCO FEMA 236
: : : : : : : : : : : : : :
All India Council for Technical Education All India Institute of Medical Sciences, New Delhi Awareness and Preparedness for Emergencies at Local Level Administrative Staff College of India, Hyderabad Administrative Training Institute Bachelor of Technology Central Board of Secondary Education Council of Scientific and Industrial Research Disaster Mitigation Institute, Bhopal Department of Personnel & Training Disaster Risk Reduction Environment Impact Assessment Environmental Planning and Coordination Organization Federal Emergency Management Authority
FRI : Forest Research Institute, Dehradun HR plan : Human Resource Plan HRD : Human Resource Development ICMR : Indian Council of Medical Research, New Delhi ICSE : Indian Certificate of Secondary Education IDMC : India Disaster Management Congress IGNFA : Indian Gandhi National Forestry Academy IGNOU : Indira Gandhi National Open University IIM : Indian Institute of Management IIPA : Indian Institute of Disaster Management IIT : Indian Institute of Technology KVKs : Krishi Vigyan Kendras LBSNAA : Lal Bahadur Shastri National Academy of Administration, Mussorie MHA : Ministry of Home Affairs MHRD : Ministry of Human Resource and Development MoEF : Ministry of Environment and Forests NCC : National Cadet Corps NCDC : National Civil Defence College, Nagpur NCERT : National Council of Educational Research and Training NDMA : National Disaster Management Authority NDRF : National Disaster Response Force NGOs : Non Government Organisation NIDM : National Institute of Disaster Management NIOH : National Institute of Occupational Health, Ahmadabad NITs : National Institute of Technology PPP : Public‐ Private‐People Partnership TISS : Tata Institute of Social Sciences TNA : Training Need Analysis UGC : University Grant Commission UNDP : United Nation Development Programme UNICEF : United Nation Children’s Fund USEPA : United States Environmental Protection Agency WALMI : Water and Land Management Institute WHO : World Health Organization WWF : World Wildlife Fund for Nature
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