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Need for a Contemporary Approach To Disaster Management Dr. Mohan Kanda Former Member National Disaster Management Authority
Need for a Contemporary
Approach To Disaster
Management
Dr. Mohan Kanda
Former Member
National Disaster Management Authority
CONTENTS
Trends in Disasters, World wide, India, A.P
Disaster Management Framework, Post DM Act, 2005 – Paradigm Shift
NDMA-work done
• Cutting Edge Level
o NDRF
• Supporting/Enabling Measures
o Mainstreaming of DM into Governance
o Sensitization of Functionaries
o Awareness Generation
National Policy – Highlights
Gist of NDMA’s Guidelines
Flood’s, Drought, Landslides, Cyclone, Industrial, Nuclear, Biological, Chemical,
Earthquake, Tsunami, Urban Flooding etc.
Medical Preparedness and Mass Casualty Management, Communications etc.
Preparation of plans (National/State) – status and efforts on to operationalise measures
thrown up by the plans
NDMA/SDMA - responsibilities and challenges 2
3
A disaster is an event causing extreme disruption of the
functioning of society, that resulting in widespread human,
material, or environmental losses beyond the ability of the
affected people to cope with on their own. They can be
natural (floods, cyclones, earthquakes and landslides etc.) or
man-made (riots, terrorist, bomb blasts, chemical, biological
radiological and nuclear accidents etc.).
4
What are natural disasters? (floods, earthquakes, droughts,
landslides and cyclones) Man-made – riots wars, injuring,
terrorist - incidents, bomb blasts, air/sea/road accidents
5
Mitigation of losses to life and property increases with prevention and preparedness. Broadly speaking. risk x exposure Vulnerability = preparedness
6
Worldwide Disasters Impacts :
1992 - 2012
4.4 Billion Affected
1.3 Million Killed
2.0 Trillion Damage (USD)
Source: UNISDR
7
INCIDENCE OF DISASTERS
IMPACT
Legend
Severe
Moderate
Low
MITIGATION IMPACT
8
9
10
Indian Scenario
British risk assessors Maplecroft -
India along with six other countries (Mexico, the Philippines,
Turkey, Indonesia, Italy, and Canada) was rated as "high risk"
in absolute terms.
According to the World Bank:
i. Direct losses from natural disasters have been estimated to
amount up to 2 per cent of India’s GDP and up to 12 per
cent of central government revenues.
ii. One dollar spent on prevention saves ten.
11
DURING DISASTER
DISASTER MANAGEMENT CYCLE
PRE-DISASTER
12
EARTHQUAKES
Magnitude (Richter) Year Country Fatalities
6.4 1993 India (Latur) 7,928
6.7 1994 USA (California) 60
> 6.0 2003-05 (7 Events) Japan 34
6.7 2003 Iran (Bam) 40,000
6.5 2010 USA (California) Nil
One Dollar invested in Mitigation
saves Seven Dollars. Source – BBC Hard Talk, Geneva
Impacting 2 to 7% of GDP.
Source – World Bank Report, 2004
Allocation on State Disaster Response Fund (SDRF) – 2010-15 : Rs. 33,580.93 Cr.
Rs 25,847.93 – central share
Rs 7733.00 – state share
Expenditure on National Disaster Response Fund (NDRF)
and Reconstruction (2009-10) : Rs. 2,994 Cr.
INDIA
Note:
Does not include estimates of loss of private property. 13
14
The poor and the vulnerable including women, children, the
aged and the physically challenged, suffer the most in any
country following a disaster. Thus effective disaster
management (DM) is now uppermost among the concerns
faced by mankind. Many initiatives have come from
International organizations, including the United Nations
Development Programme (UNDP), the office for the
Coordination of Humanitarian Affairs of the UN, the United
Nations Office for Disaster Risk Reduction and the World
Bank. The UNDP’s, Disaster Risk Reduction Programme has
done well to pioneer mainstreaming of DM into development
programmes in selected states.
ECONOMIC LOSSES DUE TO DISASTERS
2009 Floods
Five districts of A.P., were hit by the flash flood and the worst
affected by the downpour were Mahbubnagar and Kurnool.
The loss reported was of the tune of Rs 12,000 Cr.
2010 cyclonic storm ‘Laila’
The “Laila” cyclone, which crossed the Andhra Pradesh coast
near Bapatla caused an estimated loss of Rs 1,630 Cr.
Eye-Opener Statistics
State GDP for A.P. for the year 2009-10 was Rs 2,65,000 Cr
(constant prices) with a Growth Rate of 5.04%.
Total losses due to Floods (2009) and Cyclonic Storm (2010)
is Rs 13,630 Cr, which incidentally is 5.14 % of the SGDP (More than the Growth Rate).
15
Disaster Management Framework
16
1. Until 2001 – Responsibility with Agriculture Ministry.
2. In the context of increasing magnitude and frequency of disasters
committees Set Up by Central Govt on Disaster Management :-
• High Powered Committee under Chairmanship of Shri J C Pant –
August 1999 (Prior to Orissa Super Cyclone).
• All Party National Committee under the Chairmanship of
Prime Minister – Feb 2001 (After Gujarat Earthquake).
1. Responsibility Transferred to MHA in June 2002.
2. DM Act passed in December 2005.
MANAGEMENT OF DISASTERS
17
APPROACH
Paradigm Shift from Response Centric to a Holistic and Integrated
Approach.
The cascading architecture of the DM log - frame is a seamless
continuum between the Act, the National Policy the guidelines of
NDMA on various disasters, the plans prepared by the central
government/states departments and the structural and non-structural
measures arising therefrom. The underlying there is the transition
from focusing the three Rs (relief, rehabilitation and recovery) to the
two Ps (prevention and preparedness).
Backed by – Policy, authorities at all levels, supported by Institutional
Framework and financial arrangements duly enabled by a statutory
environment.
PARADIGM SHIFT
18
19
Engagement with Hudhud in Visakhapatnam demonstrated
strikingly the value of an early warning – especially when it
is really early and predicts the land fall (where the cyclone
crosses the coast) accurately. This time, such a forecast
enabled a slew of invaluable measures to be taken including
• large scale evacuation of people to safer for areas,
• preemptive stoppage of potentially hazardous bus, rail,
road and water transport and –
• preventive shutdown of power supply and threatened
radar equipment
• to mention but a few.
The lessons learnt in this process will need to feed into the
extant DM plans of major cities of our country including
Delhi, Mumbai, Kolkata and Chennai all affected recently by
either floods, earthquakes or cyclones.
20
It is unfortunate fact that prevention, while better than the
cure, lacks the political glamour and administrative appeal
that post-event activities enjoy in terms of public
recognition.
21
A critical and immediate concern is the establishment, and
importantly, the enforcement, of techno-legal regimes.
Floods, in India are a state - subject under our constitution. A
draft Flood Plain Zoning Regulation, that could substantially
improve flood-mitigation efforts, circulated in 1975 by the
central government, has so far been converted into law only
by Mizoram and Rajasthan!
A poor commentary that on the importance attached to that
subject by the other states.
NDMA – Work Done Cutting Edge Level-NDRF
Supporting/Enabling Measures
22
NDRF – Bns & Teams Locations
7th Bn Ludhiyana 1. Srinagar 2. Kangra
8th Ghaziabad 1. Delhi (CBRN) 2. Lucknow
6th Bn Vadodara 1.Gandhinagar 2. Barmer
5th Bn Pune 1. Bangalore 2. Mumbai (CBRN)
4th Bn Arakkonam 1. Chennai 2. Portblair 3. Kozhikode
10th Bn Guntur 1. Hyderabad 2.Vishakhapatanam
3rd Bn Mundali 1. Baleshwar
2nd Bn Kalyani 1. Kolkata (CBRN) 2. Siliguri 3. Gangtok
1st Bn Guwahati 1. Aizawl 2. Itanagar
9th Bn Patna 1. Vanarasi 2. Supaul
NDRF Bns
Team Locations
1
2
1
2
1
2
2
1 1 2
1 2
1 1
2
3 2
1
1 2
3
Two more Battalions Approved proposed to be
located at Silchar and Haridwar.
2 23
Composition
Each Bn has authorized strength of 1149 personnel
Each Bn has 18 specialist teams of 47 members to handle natural disasters & CBRN emergencies
Each team of 47 to have 1 Doctor, 2 Engineers, 2 Paramedics, 1 Technician, 1 Electrician & 1 Dog Squad
Total no. – 18 teams x 10 Bn = 180 teams
Total authorized strength of NDRF – 11,490 personnel
24
Disaster Response
Deployed over 190 disaster response
operations so far
Rescued about 2,82,228 disaster
victims and retrieved 1231 bodies.
25
Delhi Metro, 26 March 2010 Flood, Bellary, 14 Sep 2009 Cyclone, Porbander, 19 Jun 09
ONGOING ACTIVITIES AND MAJOR INITIATIVES: CAPACITY BUILDING
Mock Exercises (Districts & Schools)
• Conducted so far. : 260 (including 82 Schools/ Colleges).
• Community and First Responders :
Sensitized/ Trained. Over 16.5 Lakhs.
• States/ UTs Covered –35.
• Districts Covered – 94.
• Exercises Conducted on –
all Natural Disasters, Fire,
Man-made Disasters and
School Safety.
Commonwealth Games (All Competition/ Practice Venues,
Games Village & Places of Stay)
• Conducted. : 60.
Mock Exercises conducted during 2013-2014 : 85
26
KOSI FLOODS
AUGUST 08
LANDSLIDE RESCUE,
DARJEELING, JUN 09 AP & KARNATAKA FLOODS
OCT 09
SAR
OPERATION AT
SABJI MANDI,
CHANDIGARH, JUN 07
NDRF in Action
• The Force reaches in advance
• Is trained and equipped
• Rehearsals already done – so
familiar with terrain
27
Jalandhar Building Collapse, 2012
28
Assam Floods, 2012
29
Cyclone Nilam, 2012
30
Floods in Andhra Pradesh & Odisha, 2013
31
Uttarakhand Flash Floods, 2013
32
Uttarakhand Flash Floods
33
34
Cyclone Phailin, 2013
Cyclone Phailin, 2013
36
J&K Floods
37
38
NDMA Initiatives
J & K Flood Response & Rehabilitation
• Mobilized resources including equipment for de-watering, relief
materials, Medical First Response (MFR), etc.
• Post Disaster - DBT Rs. 367.69 Cr to 1,09,268 beneficiaries
whose houses were completely, severely or partially damaged.
• Hospital Equipment (Rs. 137.97 Cr.): Order placed for 217 items
by HLL (Rs. 111.54 Cr); 188 items delivered, 122 installed and
106 commissioned. Another 238 items to be procured by J&K at
a cost of Rs. 20.14 cr. 56 items already procured.
• A total of 1,18,500 text books sets comprising of 7,05,698 text
books have been got distributed by the State education
department amongst 77,244 Govt Schools and 41,256 Private
Schools. 180 text book sets comprising of 7,200 text books from
NCERT have also been handed over to representative of 5
Kendriya Vidyalayas and 3 Jawahar Navodaya Vidyalayas
through the State Education Department. 39
40
Cyclone Hudhud, 2014
Preparation in advance
Response afterwards
41
Cyclone Hudhud • A “very severe” Cyclone 'HUDHUD' struck Andhra Pradesh
and Odisha on October 12, 2014.
• In A.P., about 9.2 million people in over 7285 villages in 4 coastal districts were affected resulting in 61 human causalities. The timely action of Govt. of India and State Government after the Cyclone warning resulted in minimum causalities.
• Over 2,22,000 people were evacuated from low lying and vulnerable areas to 310 relief camps. In addition, 1688 medical camps were opened, about 2.9 million food packets and 6.5 million water packets were distributed over a period of 15 days .
• Although the human causalities were relatively low, there was massive loss of livelihood in the affected areas.
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• About 1,12,850 houses were partially or fully damaged in the coastal areas of Vishakhapatnam district alone.
• More than 7,52,540 households living on agriculture, horticulture, livestock, fisheries and handlooms, were severely affected.
• Agricultural and horticultural crops were severely damaged on account of cyclonic storm and floods due to heavy rains.
• A rapid damage needs assessment team of the World Bank estimated the total damages to the tune of about Rs. 13,263 Crores (US $ 2155 million) to Hudhud.
Cyclone Hudhud
43
MOCK EXERCISES IN SCHOOLS IN DIFFERENT PARTS OF THE COUNTRY
Amity International School,
GURGAON, 29 Apr 09
Convent of Jesus & Mary,
NEW DELHI, 20 Apr 09
Govt. Inter College, Dhela,
Ramnagar, UTTARAKHAND
09 Apr 09
JVM School, Bellary,
KARNATAKA, 17 Jun 09
Mata Jai Kaur Public School,
NEW DELHI, 05 May 09
School Safety
44
45
It is necessary also to note that Restoration effort, as now
on in Visakhapatnam, is an opportunity to update and
contemporarise the design, architecture, engineering and
choice of material used in infrastructure to state-of-the-art
levels. The proposed “smart cities” idea will no doubt be
informed by such vital concerns.
Estimated Value of Physical Infrastructure
proposed during 12th Five Year Plan period –
1,28,160 Cr.
Support From –
•Planning Commission – Promises Investment Support.
• Finance Ministry – Amends EFC/ CNE check memos
for including Disaster Resilience Audit
(self-certification of all
infrastructural Projects).
• 13th Finance Commission –
o For Fire Services Rs 200 Cr allotted
o For Capacity Building and upgradation of SDRF Rs. 525 Cr allotted
o For National Disaster Response Reserves Rs. 250 Cr allotted
Mainstreaming of DM into Governance
NDMA Guidelines on Disasters/ Themes
Formulation of Plans (Ministries/ States)
Measures
Structural Non-Structural
National Policy DM Act
New Programmes/
Projects
Ongoing Programmes/
Projects
Revisit Completed Projects
(on selective basis)
SUPPORTING/ ENABLING MEASURES
Disaster Resilience of Infrastructure Projects : Audit and Corrective Actions • Reporting Item in NDC Agenda.
• Enabling Regulatory Environment
– Laws/ Regulations/ Codes.
• Education.
• Training of Functionaries (Govt./
PRI/ ULB).
• Awareness Generation.
• Capacity Building (Includes
Response Forces & Community).
46
Education
• Hitherto confined to Schools only.
• Now to encompass entire Higher/ Technical Education.
• All Undergraduate Courses.
• Medical.
• Engineering.
• Architecture.
• Agriculture. :
• A Committee with Addl Secy MoHRD as the Chairperson with representatives
of UGC, AICTE, etc has been formed.
Advocacy with States to Enact/ Amend –
• Flood Plain Zoning Regulations
• Building By-laws and
• Vulnerability Assessment & Risk Analysis
Under Active
Progress.
Already Included.
SUPPORTING/ ENABLING MEASURES
47
Incident Response Training – till 2014 (February)
• IAS and Central Services, – LBSNAA, Mussoorie : 14
and MCR HRD Institute, Hyderabad.
• IPS – NPA, Hyderabad (15 Courses). : 53
Total. : 67
SUPPORTING/ ENABLING MEASURES
48
Awareness Generation
• Earthquakes.
• Cyclones.
• Floods.
SUPPORTING/ ENABLING MEASURES
49
50
TASKS ACCOMPLISHED
1. Earthquakes;
2. Tsunami;
3. Cyclones;
4. Floods;
5. Urban Flooding;
6. Drought;
7. Landslides & Snow Avalanches;
8. Nuclear and Radiological Emergencies (Unclassified) - I);
9. Chemical (Industrial) Disasters;
Guidelines Issued
51
10. Chemical (Terrorism) Disaster;
11. Biological Disasters;
12. Medical Preparedness and Mass Casualty Management;
13. Psycho-Social and Mental Health Care;
14. Formulation of State Disaster Management Plans;
15. Incident Response System;
16. IT and Communication;
17. Scaling, Type of Equipment and Training of Fire Services;
18. Seismic Retrofitting of Deficient Buildings and Structure.
Guidelines Issued
52
53
1. School Safety,
2. Hospital Safety,
3. Community Based Disaster Management,
4. Role of NGOs in Disaster Management.
Guidelines under Finalization
Other Reports Prepared by NDMA and available on the NDMA Website
54
1. Revamping of Civil Defence
2. NIDM's Functioning
3. Pandemic Preparedness Beyond Health
4. Strengthening of safety and security for transportation of POL
tankers
5. Threats to Municipal Water Supply and Water Reservoir’s
6. Management of Dead in the Aftermath of Disaster
7. Training Regime for Disaster Response
8. Hand Book for Training and Capacity Building of Civil Defence and
Sister Organizations: Part I&II
9. Crowd Management
55
2. Formulation of DM Plans by Central Ministries and States
ONGOING ACTIVITIES AND MAJOR INITIATIVES
• National Level Plans.
• National Disaster Management Plan NEC TO BE
APPROVED
BY NDMA.
Progress in Preparation of DM Plans Completed Under Preparation
• Central Ministries/ Departments 05. 03.
• States (To be approved by the SDMAs). 25. 10.
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Financing for DM
• National Disaster Response Fund generated through the levy of cess on selected items for meeting any threatening disaster situation or disaster.
• State Disaster Response Fund – Size of the corpus for each State determined by Finance Commission. Allocation for 2015-20 – ₹ 61,219 crore.
• Norms of expenditure from SDRF and NDRF prescribed.
• Calamities covered under SDRF/ NDRF – cyclone, earthquake, fire, flood, tsunami, landslide, avalanche, cloud burst, (being monitored by MHA) drought, hailstorm, pest attack, cold wave/ frost (being monitored by Department of Agriculture and Cooperation).
57
Financing for DM contd..
• Flexi Funds available with Central Ministries/ Departments for the purpose of Disaster Management.
• Post disaster reconstruction can be undertaken out of Plan Funds.
• Funds under Corporate Social Responsibility and MP Local Area Development Schemes are also available.
58
Features of SDRF and NDRF
• The funding of assistance is towards providing immediate relief. It
is not for compensation of loss.
• The State Executive Committee shall be responsible to ensure that
the money drawn from SDRF is actually utilized for the purpose it
has been set up.
• The norms for the amounts to be incurred on each approved item of
expenditure is prescribed by the MHA in consultation with MoF. In
case the State Government exceeds the prescribed amount, the
excess expenditure should be borne from the budget of the State
Government and should not be charged from the SDRF or NDRF.
• The provision for disaster preparedness, restoration,
reconstruction and mitigation should not be part of SDRF or NDRF.
Such expenditure is needed to be built into the State Plans.
• The State Government shall furnish an Annual Report on natural
calamities in the prescribed format to the MHA and MoF by
September, every year.
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HOW WELL IS THE COUNTRY PREPARED
Sl.
No.
FACTORS Weightage in
Per cent
1. Awareness Generation 10
2. Guidelines Issued and Plans Prepared 10
3. DM Included into Fabric of the Governance – Mainstreaming DM into
Developmental Plans
12
4. Capacity Building – Response 12
5. Preparedness, Forecasting & EW 08
6. Preparedness – Mock Exercises 06
7. Mitigation Projects 08
8. Scientific and Technological Interventions 07
9. Medical Preparedness 07
10. Introduction of DM Curriculum in Education 08
11. Fire Services 08
12. Techno-Legal Regime 04
Total 100%
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HOW WELL IS THE COUNTRY PREPARED Sl.
No.
FACTORS
Weightage
Assigned
(in %)
LEVEL OF PREPAREDNESS (SCORE CARD)
Two Years
Ago
Current
Level
Five Years
Later
1. Awareness Generation 10 5 8
2. Guidelines Issued and Plans Prepared 10 6 8
3. DM Included into Fabric of the Governance
– Mainstreaming DM into Developmental
Plans
12 5 9
4. Capacity Building – Response 12 6 9
5. Preparedness, Forecasting & EW 08 4 6
6. Preparedness – Mock Exercises 06 4 5
7. Mitigation Projects 08 4 6
8. Scientific and Technological Interventions 07 3.5 5
9. Medical Preparedness 07 3.5 5
10. Introduction of DM Curriculum in Education 08 3 5
11. Fire Services 08 2 4
12. Techno-Legal Regime 04 1 2
Total 100% 29% 47% 72%
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NDMA/SDMA - responsibilities and challenges
62
LEAD TAKEN BY STATES ON SDMA’S
24 States have made SDM Plans
Maharashtra has experts as member of SDMA
Bihar has a Retd Civil Servant as a full time Vice Chairman
Rajasthan and Manipur have done Flood plane zoning
Orissa and Kerala have an SDM Policy
Gujarat has done Vulnerability Assessment and Risk analysis
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Planning, coordination and monitoring
Lays down the policies
Approves Disaster Management Plans and coordinates its implementation
Provides guidelines and reviews measures taken for mitigation, capacity
building and preparedness
Recommend provision of funds for mitigation and preparedness measures.
Examine the vulnerability of the State and specify prevention or mitigation
measures
Ensure updation of DM plans, working of emergency communication systems
and organizing of DM drills periodically
Examine the construction, in the State and ensure compliance of standards
Promote general education, awareness
Develop capacities for compliance of building codes
Facilitate knowledge sharing
Human Resource development of DM authorities and institutions.
SDMA – MAIN RESPONSIBILITIES
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CHALLENGES FACING THE SDMA
Need for Informed leadership and administratively feasible programmes
Preserve and protect developmental gains
Minimize losses to life and property
The SDM Plan to address requirements of completed as well as ongoing projects/
programmes
provide the funds required for operationalizing these DM Plans
SDRF
Flood Plane Zoning laws + building by-laws
Positioning of SDMA
Establishing relationships
Synergetic, Mutually reinforcing, Productive and Harmonious
Advantages in A.P. Lessons learnt from NDMA A Compact and well-toned State administration Any amount of interest from EA agencies
65
In this context the need for those at the helm of affairs to
remember that those in-charge of relief operations or also
part of affected community is often ignored. The temptation to
by-pass lines of control and channels of communication is
great in an emergency but necessary to be resisted at all
costs.
A golden mean has to be struck between the natural instant
to comfort and express concern and the imperative not to
disturb SAR operations
On 11th March 2011 an
Earthquake of unprecedented
scale struck TOHOKU region
of Japan followed by Tsunami
and Fukushima radiological
disaster.
66
67
• Team was capable of responding in any
natural disaster as well as in CBRN
emergencies.
• Capable of round the clock operations
• Self-sufficient in Lodging & Boarding.
• Team carried CBRN protective gear &
equipments for safety of the team
members as regards the radioactive
contamination threats. 68
Contingent consisting of 46
members led by Sh. Alok Avasthy,
Commandant was dispatched to Japan
as part of relief & rehabilitation efforts
by the Govt. of India in Japan in the
wake of massive destruction caused by
earthquake and subsequent tsunami in
the Tohoku region of the Eastern Japan.
69
The Calm :
Not a single chest-beating or wild grief
scene
The Dignity
Disciplined queues for Water & Groceries.
Not a rough word or crude gesture
The Ability
The incredible architects.
JAPAN : CLASSIC EXAMPLE OF GREAT NATION
10 LESSONS TO LEARN FROM JAPAN
71
10 Lessons learnt from Japan
Disaster’… Contd
The Grace :
People bought only what they needed for
the present, so everybody could get
something
The Order :
No looting in shops. No honking/ overtaking
on roads
The Sacrifice :
50 Workers stayed back to pump sea water
in nuclear reactors
72
The Tenderness :
Restaurants cut prices : The strong cared for the
weak
The Training :
Elderly people & children, everyone knew
exactly what to do. And they did just that
The Media :
Showed magnificent restraint in bulletins. No
silly reportings. Only calm reportage
The Conscience :
When the power went off in a store, people put
things back on the shelves & left quietly
10 Lessons learnt from Japan
Disaster’… Contd
73
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• Team managed to extricate many Bodies from
the Rubble, more than Two weeks after the
Disaster struck the area.
• Absence of any heavy Equipment at the disposal
of the team.
• The team recovered & handed over cash worth
Fifty Million Yen to the authorities apart from the
valuables.
• Appreciation by the local authorities, media and
the public at large.
• Commendation of our work conveyed by the
Govt. of Japan to the Embassy of India
75
• On 5th of April 2011 people who lived in Rehab Camp in Ongawa town hall gave vote of thanks to Indian Team & Shared their experience with the contingent CDR.
• The apparent dedication, honesty, cultural sensitivity and emotional quotient of the team was highly appreciated by the Mayor of Onagawa. Media and public.
• The Mayor of Rifu Cho also thanked and expressed his gratitude to the Indian team for help and support provided to the people of the Miyagi in general and Onagawa in particular.
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THANK YOU
