30th  September,  
2015  

  Recommendations  
 

DISASTER  RISK  REDUCTION  INCLUDING  CLIMATE  CHANGE  

ADAPTATION  OF  GUWAHATI  IN  CONTEXT  OF  DYNAMIC  
GROWTH  
 
For  ASDMA,  Government  of  Assam  
 
CGSD,  Earth  Institute,  Columbia  University,  New  York  
Sustainable  Urbanism  International,  Bangalore  
Indian  Institute  of  Technology,  New  Delhi  
  
PROJECT  EXECUTIVE  
SUMMARY  
 

   

Page  1  of  34  

Guwahati  has  experienced  major  flood  events  in  six  of  the  last  fifteen  years,  along  with  a  number  
of  smaller  events,  with  significant  impacts  on  the  functioning  of  the  city  and  the  quality  of  life  of  
its  citizens.  In  the  context  of  a  changing  climate  and  a  fast  growing  city,  we  investigated  the  
range  of  physical,  environmental,  socioeconomic,  infrastructural,  and  institutional  risk  factors  
that  contribute  to  urban  flooding  in  Guwahati.  The  risk  factors  for  urban  flooding  are  complex,  
interwoven,  and  intimately  tied  to  fundamental  gaps  in  planning,  enforcement,  and  
management  activities  at  urban,  neighborhood  and  building  levels.  We  found  that  flooding  is  a  
function  of  high  rainfall  intensity  and  duration;  of  unsystematic  land  use  planning;  of  the  bowl-­‐
like  topography  and  limitations  in  the  natural  and  artificial  systems  of  drainage  of  GMA  
watershed;  of  urban  infrastructure  planning,  design  and  maintenance;  and  lack  of  institutional  
coordination  amongst  other  issues.  Interactions  amongst  them  creates  further  dynamism,  
making  urban  flooding  complex  and  frustrating,  with  solutions  that  seem  obvious  in  the  abstract  
but  potentially  difficult  to  succeed  in  practice.    
 

In  recent  years  Guwahati  has  experienced  an  increasing  number  of  extreme  rainfall  events,  even  
as  the  average  seasonal  total  rainfall  for  the  monsoon  has  decreased.  We  examined  the  current  
changes  in  the  surface  air  temperature  and  rainfall  and  their  extremes  at  Guwahati  based  on  
observed  data,  and  projected  these  climatic  parameters  into  the  future  based  on  simulated  
fields  by  selected  Global  Circulation  Models  (GCMs)  and  Regional  Circulation  Models  (RCMs).  In  
order  to  take  care  of  model  uncertainties,  we  examined  the  characteristics  of  changes  and  their  
projections  not  only  for  GMA  but  also  for  the  surrounding  meteorological  subdivision  of  Assam  
and  the  larger  homogeneous  zone  of  Northeast  India.  A  climate  signal  is  identified  as  being  a  
robust  signal  provided  its  characteristics  at  the  GMA  level  remain  the  same  as  found  in  
surrounding  Assam  and  Northeast  regional  scales.  Robust  signals  of  climate  change  and  their  
projections  out  to  2044  from  our  investigations  are  as  follows:  Various  model  simulations  
(including  RegCM4.3,  CCSM3,  GFDL  and  MPI)  project  a  robust  signal  of  increase  in  the  annual  
minimum  and  mean  temperatures,  over  the  next  30  years.  RegCM4.3  simulations  project  
decrease  in  cold  days  and  CCSM3  simulations  project  a  decrease  in  cold  temperature  events.  
MIROC  and  CNRM  simulations  project  increase  in  warm  nights.  RegCM4.3  simulations  project  
that  heavy  rainfall  events  may  significantly  increase  in  Guwahati,  in  its  subdivision  Assam  and  
homogenous  zone  North  East.  The  trends  in  June,  July,  August  and  September  (JJAS)  mean  and  
annual  specific  humidity  based  on  RegCM4.3,  CNRM  and  MIROC  simulations  may  increase  
significantly.  All  the  observed  climatic  fields,  GCM  simulated  parameters  and  their  downscaled  
products  used  in  this  analysis  are  available  as  part  of  project  outputs  for  uploading  on  a  server.    

Page  2  of  34  

  

Given  the  frequency  of  flooding  experienced  by  Guwahati  now  and  the  likely  increase  in  flooding  
risks  due  to  a  projected  rise  in  high  rainfall  events  from  climate  change,  the  city’s  Master  Plan  
should  pay  close  attention  to  reduce  vulnerability  to  urban  flooding.  Comprehensive  planning  of  
commercial  and  residential  land  uses,  protection  of  crucial  ecosystems  to  be  natural  buffers,  and  
systematic  planning  and  maintenance  of  key  flood  infrastructure  would  be  critical.    However,  
urban  flooding  risk  and  their  mitigation  do  not  appear  as  important  considerations  in  the  2009  or  
in  the  draft  2014  Comprehensive  Master  Plan  (CMP).  Detailed  analysis  of  flood  hazards  that  are  
available  (such  as  the  ASDMA  commissioned  “Hazard  Risk  and  Vulnerability  Assessment”)  do  not  
appear  to  have  been  considered.  The  2014  draft  CMP,  for  example,  does  not  spatially  locate  
flood  prone  areas,  making  it  challenging  to  guide  flood  resilient  landuse  development.  
Economics  of  land  values  and  connectivity,  rather  than  ecological  characteristics  and  flood  risk,  
seem  to  dominate  land  use  identification  in  the  draft  2014  CMP.  

 
Two  specific  issues  likely  to  enhance  vulnerability  to  flooding  in  the  future  remain  unexplored  in  
the  2014  draft  CMP.  First,  is  the  impact  of  a  changing  climate  on  rainfall  in  the  greater  Guwahati  
and  Northeast  region,  and  second,  increase  in  the  volume  of  run  off  water  due  to  increase  in  
hard  surfacing  area.  Result  of  climate  investigations  in  this  project,  as  noted  before,  confirm  the  
necessity  to  plan  for  a  future  to  deal  with,  manage,  and  quickly  get  rid  of  more  water  from  
rainfall,  following  relatively  intense  rainfall  events.    As  a  city  gets  more  built  up,  through  land  use  
changes  in  the  periphery  and  more  dense  development  in  the  wards,  there  is  a  rising  trend  in  the  
volume  of  run  off  water.  For  Guwahati  this  would  mean  that  in  the  coming  years,  the  city  would  
need  to  direct  and  manage  the  draining  and  or  absorption  of  more  surface  run  off  volumes.    The  
combined  impacts  of  these  two  issues  (higher  volumes  of  episodic  rain  fall  and  more  run  off  
volumes  from  increased  hard  surfacing)  demands  that  the  2014  CMP  urgently  consider  flooding  
risks  as  one  of  the  core  drivers  in  planning  Guwahati’s  land  use,  in  infrastructure  plans  and  in  
regulating  building  foot  prints.    
 
Numerous  large-­‐scale  projects  and  policies  have  been  developed  and  proposed  over  the  years.  
Unfortunately,  a  majority  of  those  that  account  for  key  drivers  of  flooding  have  either  not  been  
funded  or  effectively  implemented.  Furthermore,  many  of  these  efforts  have  been  aimed  at  a  
single  issue  rather  than  a  comprehensive  approach  to  flood  management.  The  Water  Resources  
Department  has  developed  a  “Comprehensive  plan  for  management  of  drainage  congestion  
problem  of  Greater  Guwahati  -­‐  For  Natural  Drainage  Channels  only”  (2013),  though  funding  

Page  3  of  34  

availability  remains  uncertain.    The  building  bylaws  for  the  Guwahati  Metropolitan  Area  were  
updated  in  February  2014.  The  regulations  include  a  section  on  “sites  liable  to  floods”  (Building  
bylaws  2014),  signal  good  intentions,  but  remain  challenging  in  practice.  It  is  not  clear,  for  
example,  what  would  constitute,  “dangerous  or  injurious  to  health”,  or  “undue  expenditure”.    
Clearer  objective  metrics  would  help  bring  clarity  and  go  a  long  way  in  making  transparent  the  
basis  of  decision-­‐making.    
 

The  significant  increase  in  the  population  of  Guwahati  over  the  past  four  decades  has  put  huge  
strain  on  housing  resources.    There  is  an  intense  shortage  of  affordable  housing,  exacerbated  by  
high  land  prices  and  the  poor  quality  of  much  of  the  existing  housing  stock.  While  the  draft  2014  
master  plan  emphasizes  provision  of  housing,  including  affordable  units,  the  rational  for  
proposing  a  significantly  lower  proportion  of  land  for  residential  use  (at  24%  which  is  far  less  
than  the  45-­‐50%  recommended  by  the  national  Ministry  of  Urban  Development)  is  unclear.      
Demographic  pressures  and  lack  of  planning  low-­‐income  housing  have  led  people  to  settle  in  hill  
and  forest  areas.  Marshy  lands  and  the  low-­‐lying  areas  of  seasonal  ponds  too  have  been  built  up  
over  the  years.    
 
 
Change  in  land  use  from  natural  vegetation  to  impermeable  artificial  cover,  poorly  designed  
roads,  cutting  of  trees  and  clearing  vegetation,  replacing  absorptive  surface  with  non-­‐permeable  
surfacing  have  all  resulted  in  increased  run  off  from  hills,  leading  to  enhanced  siltation  of  
downstream  drains.  Regulating  urban  expansion  in  the  hills  around  Guwahati  would  be  a  
valuable  step  in  reducing  rainfall  runoff  and  siltation,  and  significantly  reducing  the  risk  for  
landslides.  Landslides  themselves  further  increase  siltation  and  the  risk  of  flooding.  Strong  
technical  knowledge  of  local  universities  such  as  IIT-­‐Guwahati  and  Assam  Engineering  College  on  
design  parameters  and  application  of  earth  stabilization  techniques,  for  example,  could  be  
effectively  utilized  here.    While  hill  areas  are  legally  protected  against  settlement,  there  is  limited  
enforcement  especially  as  the  rules  for  the  Acts  related  to  the  protection  of  forests  and  lakes  are  
yet  to  be  formulated.  In  addition  to  the  social  and  political  pressures  and  problems  of  boundary  
demarcation,  implementation  of  settlement  regulations  is  complicated  by  many  layered  
government  agency  jurisdiction  involving  the  state  government  of  Assam,  Department  of  
Environment  and  Forests,  GMDA  and  the  district  administration.    
 

Page  4  of  34  

In  addition  to  understanding  the  drivers  of  urban  flooding  at  the  city  level,  we  investigated  the  
reasons  why  some  areas  of  Guwahati  are  becoming  more  vulnerable  to  flood  impacts.  
Occupation,  income,  housing,  and  access  to  basic  infrastructure,  we  found,  all  play  a  part  in  
determining  the  exposure  to  and  intensity  of  flooding  impacts.  We  carried  out  studies  of  two  
neighborhoods  (Anil  Nagar  and  Dhirenpara)  to  better  understand  the  nature  and  extent  of  
flooding,  vulnerabilities  among  different  segments  of  population  and  flooding  impacts.  We  
interviewed  members  from  varying  socio-­‐economic  groups.  The  neighborhood  studies  provided  
us  with  better  insights  into  household  level  mitigation  and  prevention  efforts.  Local  level  
responses,  however,  transfer  risks  to  the  more  vulnerable  population  in  the  area.  There  is  also  
an  absence  of  organized  community  level  initiatives  for  disaster  response  and  low  level  of  
awareness  of  the  specifics  of  hazard  and  risks  faced  by  neighborhoods.  

 
Residential  and  commercial  construction  across  the  city  has  increased  surface  runoff,  and  limited  
the  area  of  the  wetlands  and  water  bodies  as  well  as  their  absorptive  and  carrying  capacities  as  
the  city’s  natural  sinks.  Weak  enforcement  of  existing  regulations  meant  to  protect  the  city’s  
natural  drain  areas  has  exacerbated  the  situation.  Secondary  and  tertiary  drains  were  not  
designed  to  handle  intense  storm  water,  and  they  routinely  fill  with  silt  from  the  hills,  aggravated  
by  landslides,  and  solid  waste  that  block  water  flow.  The  complex  jurisdiction  of  drain  
maintenance  and  clearing  activities  involving  numerous  agencies  and  actors  makes  coordination  
and  oversight  difficult.    
 
The  city’s  drainage  system  comprises  primary,  secondary  and  tertiary  drains,  all  of  which  must  
function  adequately  and  at  sufficient  capacity  to  mitigate  urban  flooding.    At  present,  no  single  
map  represents  the  entire  drainage  system  of  the  GMA  (and  the  collective  responsibility  of  
various  agencies).  The  drain  capacity  for  secondary  and  tertiary  drains  is  insufficient,  both  at  a  
micro  level  (individual  drains  and  drain  connections  are  not  designed  for  flooding)  and  at  a  
systems  level  (total  drain  capacity  is  not  enough  to  handle  the  total  run  off),  with  the  drains  
running  along  main  roads  not  originally  designed  to  serve  as  storm  water  drains.    Pumping  
equipment  in  most  locations  is  not  suitable  to  local  conditions.  Nearly  half  of  the  available  
pumps  have  an  electrical  power  source.  Power  cuts  significantly  impact  the  pumping  operations,  
as  do  the  lack  of  adequate  number  of  submersible  pumps.  
 

Although  desilting  and  cleaning  of  drains  is  undertaken  by  several  agencies  annually,  many  drains  
in  Guwahati  remain  ridden  with  silt.  Greater  coordination  and  monitoring  of  drain  clearance  as  

Page  5  of  34  

well  as  developing  standard  guidelines  for  contractors  would  help  with  the  drain  maintenance.  
Some  underground  drains  are  not  accessible  because  the  manholes  have  been  completely  
sealed  up  by  road  asphalt,  while  in  others  business  and  households  have  covered  drains  
completely.  Increasing  run  off  from  the  hills  and  the  increasing  load  of  silt  on  the  drains  in  
Guwahati  need  to  be  urgently  addressed  so  as  to  reduce  the  flooding  risks.  The  importance  of  
detailed  coordination  becomes  evident  in  some  instances  when  even  a  small  time  gap  between  
manual  desiltation  (laborers  digging  up  and  piling  the  silt  along  the  road)  and  silt  collection  
(usually  by  small  truck)  occurs.  Heavy  rainfall  at  this  time  means  that  the  silt  that  has  been  dug  
out  and  placed  on  the  edge  of  the  drain  simply  gets  washed  back  into  the  drain.    Hence,  while  
there  have  been  numerous  efforts  to  manage  the  desilting  and  clearing  of  the  drainage  system,  
the  efficacy  and  success  of  these  activities  can  be  improved  through  simple  reforms  and  
standardization  of  procedures  across  agencies.    
 
Solid  waste  further,  clogs  drains.  In  addition  to  solid  waste  from  hospitals,  restaurants  and  
hotels,  much  of  the  household  waste  sometimes  remains  uncollected.  The  first  few  months  of  a  
new  system,  with  NGOs  responsible  at  the  ward  level,  signs  are  encouraging  with  coverage  
estimated  to  have  gone  up  to  70%  (1.5  to  1.6  lakhs  out  of  2  lakhs  households).  The  absence  of  a  
separate  underground  sewage  system  in  a  majority  of  neighborhoods  means  that  the  open  
drains  often  carry  sewage  as  well  as  storm  water.    
 

Effective  implementation  of  drainage  plans  and  maintenance  requires  access  to  solid  and  reliable  
data  across  multiple  agencies.  Implementation  is  significantly  hampered  when  data  collection  
processes  vary  across  agencies,  but  are  also  not  centralized  even  within  the  same  agency.    
Accurate  rainfall  volume  is  an  obvious  measure,  which  is  critical  for  drainage  planning  and  
operations.    This  data  is  noted  at  different  times  of  the  day  by  different  agencies  (WRD  measures  
rainfall  at  08:00  and  NESAC  measures  rainfall  at  23:00  hours,  for  example).  Type  of  data  
collected  also  differs,  with  some  stations  only  keeping  records  of  rainfall  duration  and  not  
volume.    For  the  Guwahati  metro  area  only  five  rainfall  gauges  are  currently  available,  spread  
across  three  agencies  (2  gauges  each  with  NESAC  and  WRD,  and  one  with  IMD).    A  commonly  
shared  data  platform  for  collation  and  analysis  of  geo-­‐referenced  rainfall  data  would  improve  the  
city’s  ability  to  reliably  plan  drainage  system  needs,  desilting  operations  and  pumping  schedules.    
 
 

Page  6  of  34  

A  climate  and  disaster  risk  tool  database  was  developed  following  an  extensive  survey  of  existing  
climate  and  disaster  risk  tools.  We  surveyed  methods,  including  quantitative  and  qualitative  tools  
and  frameworks  in  a  global  context.    Filtering  for  methods  with  applicability  to  water  resources  
and  flooding  risks,  we  compiled  tools  in  a  database  and  developed  a  classification  system  for  
categorizing  the  tools.  By  intersecting  flooding  risks  with  the  tool  database,  we  arrived  at  select  
tools  whose  risks  have  a  relatively  high  overlap  with  the  urban  flooding  risks  of  Guwahati.    We  
identified  valuable  components  of  an  array  or  relevant  tools.  Ultimately,  however,  we  find  the  
existing  cache  of  tools  to  be  lacking  in  their  applicability  to  risks  generated  by  the  disaster  
confluence  from  fluvial  flooding  and  fast  paced  urbanization  of  Guwahati.    A  key  lacunae  is  the  
lack  of  long-­‐term  data  available  for  Guwahati,  on  flooding  –  where  (spatial  extent),  how  many  
(number  of  events),  and  how  long  (temporal  persistence).    In  addition,  the  diverse  agencies  that  
have  responsibility  to  respond  to  urban  floods  (for  example  the  GMC,  WRD  and  the  PWD),  do  
not  have  a  shared  common  metric  on  flooding  and  nor  do  they  share  their  data.  Given  the  lack  of  
useable  long-­‐term  data  to  characterize  floods  and  their  impacts,  currently  there  is  limited  
possibility  on  the  use  of  sophisticated  climate  risk  tools  for  decision-­‐making.    

In  response  to  the  lack  of  long-­‐term  flood  data,  we  developed  an  on-­‐line  tool  for  the  public  to  
report  on  a  real  time  basis  flooding  events  from  any  part  of  the  GMA.  The  website  
(www.ireportflood.org)  was  in  a  testing  phase  over  the  last  year.  A  newer  version  of  the  website  
and  mobile  application  with  improved  administrative  utility  could  be  developed  as  an  extension  
of  this  project  as  it  is  a  useful  and  easily  manageable  tool  for  government  agencies  to  gather  
flooding  information,  report  on  addressal  of  citizen  grievances,  as  well  as  coordinating  response  
actions  spatially.  It  is  a  promising  way  for  the  agencies  to  assemble  data  sets  on  the  necessary  
characterization  of  flooding  and  impacts,  and  would  allow  for  the  testing  of  different  functions  
from  the  range  of  tools  that  we  have  identified  in  the  risk  tool  database.    We  have  also  
developed  3D  models  and  simulations  at  the  scale  of  GMA  and  two  study  areas  to  help  
investigate  scenarios  of  flooding  and  their  likely  impacts  across  spatial  levels  –  city,  
neighborhood  and  street.  Scenario  based  simulations  have  proven  to  be  effective  in  
understanding  hazards  and  related  risks,  to  prepare  short  term  and  long  term  strategic  plans,  
and  to  review  agency  capacities  and  available  resources  to  undertake  effective  actions  for  flood  
mitigation.    Using  3D  models  and  flooding  events,  simulations  for  four  scenarios  (No  risk,  Low  
risk,  High  risk,  Very  high  risk)  were  developed  to  help  officials  spatially  visualize  the  respective  
levels  of  flooding  and  their  impacts  in  various  parts  of  the  city.  

Page  7  of  34  

  
 

The  water  bodies  of  Guwahati,  particularly  the  beels  and  natural  drains  are  protected  as  eco-­‐
sensitive  zones  in  CMP  2009.  Since  the  water  bodies  are  part  of  a  larger  watershed  system  
(extending  beyond  the  GMDA  limits),  conservation  and  protection  measures  of  water  bodies  
within  the  GMA  require  consideration  of  the  larger  watershed  landscape.  The  Guwahati  Water  
Bodies  Act  2008  protects  Deepor,  Silsako,  Sarusola,  Borsola,  and  Bondajan  beels.  While  there  are  
clear  policies  and  planning  documents  on  critical  water  bodies  to  be  maintained  and  protected,  
on-­‐the-­‐ground  enforcement  needs  to  be  strengthened.    Some  of  the  beels  have  been  used  for  
construction  of  commercial  establishments  and  residences,  and  for  waste  dumping,  earth  filling,  
and  stone  quarrying.    Such  activities  interfere  with  natural  filtration,  and  directly  reduce  their  
size.  Sewage  from  residential  and  commercial  establishments,  as  well  as  industrial  effluents  
enhance  eutrophication  of  the  water  bodies.    All  of  these  impacts  reduce  the  size  and  carrying  
capacity  of  water  bodies,  limit  their  ability  to  absorb  water,  reduce  water  flow  to  the  
Brahmaputra  River,  and  increase  the  potential  for  urban  flooding.  Despite  a  strong  legal  basis  for  
the  protection  of  water  bodies,  there  is  no  clear  and  permanent  delineation  of  water  body  
boundaries.  As  a  result,  allowing  (or  disallowing)  construction  in  and  around  water  bodies  is  not  
systematic  resulting  in  constructions  that  have  taken  place  on  them  over  time.  The  penalty  for  
homes  and  businesses  for  blocking  water  channels  is  not  systematized.  As  they  are  not  always  
removed  for  blocking,  or  their  removal  not  followed  up  systematically,  many  have  remained  over  
the  years.      In  just  over  a  decade  (between  1999  and  2010),  Guwahati  water  bodies  were  
estimated  to  have  lost  more  than  40  percent  of  their  area  (1401  hectares  from  2517  hectares).  
There  is  clearly  significant  disparity  between  the  level  of  protection  awarded  to  these  water  
bodies  and  the  degree  to  which  these  protections  are  effectively  enforced.    

Following  heavy  rainfall  events,  government  agencies  need  to  better  coordinate  actions  in  order  
to  avoid  backflow  between  primary,  secondary  and  tertiary  drains.  Although  better  and  more  
pumping  equipment  (including  submersible  pumps)  are  certainly  required,  simply  installing  more  
pumps  is  not  a  solution  to  Guwahati’s  flood  problem.  First,  a  citywide  Standard  Operating  
Procedure  (SOP)  for  coordinating  pumping  operations,  based  on  practical  spatial  considerations  
is  needed  to  replace  the  current  pumping  operations  that  function  purely  as  a  reaction  to  
localized  water  levels.  Second,  a  real-­‐time  flood  monitoring  system,  utilizing  public  information  
sourcing  for  the  input  of  detailed  information  at  sub-­‐neighborhood  levels  (utilizing  the  online  

Page  8  of  34  

flood  reporting  tool  previously  noted),  is  a  critical  component.  And  finally,  a  clear  and  
comprehensive  topographic  understanding  of  Guwahati’s  current  situation  is  necessary  to  
ensure  that  the  flows  of  water  are  properly  directed  without  needless  and  ineffective  pumping  
to  higher  ground.  

Preparedness  to  reduce  the  severity  and  impacts  of  urban  flooding  in  the  upcoming  monsoon  
season  is  often  marred  by  multiplicity  of  agencies  and  lack  of  coordination  among  them.  Drain  
maintenance  was  historically  a  clear  case  in  this  regard,  with  a  number  of  agencies  with  each  
bringing  to  bear  their  own  idiosyncratic  monitoring  measures  and  efforts.  The  move  last  year  to  
make  GMC  the  single  agency  responsible  for  citywide  drain  maintenance,  is  a  welcome  one.  It  
needs  to  be  followed  up  by  provision  of  sufficient  budgetary  authority,  along  with  a  clear  time-­‐
bound  plan  of  action  (week  by  week),  specifying  the  role  of  other  city  and  state  agencies,  and  
with  contingency  actions  drawn  up  from  the  pre-­‐monsoon  period  itself.    This  could  also  form  the  
basis  for  a  clear  accountability  mechanism.  Coordination  meetings  held  by  the  District  
Administration  is  a  good  mechanism  and  should  continue,  along  with  the  fast-­‐track  authority  to  
undertake  emergency  works.  Experience  of  previous  years  Coordination  Meetings  should  form  
the  basis  for  annual  planning  to  ameliorate  flood  impacts.  We  propose  the  establishment  of  an  
Urban  Flood  Management  Cell  within  ASDMA  that  includes  as  its  members  representatives  from  
various  agencies  and  departments  such  as  GMC,  GMDA,  Water  Resources,  etc.  along  with  some  
expert  members.  This  would  provide  both  the  necessary  coordination  and  expert  inputs.    

Even  when  planning  and  enforcement  activities  are  aligned  and  effective,  barriers  to  successful  
implementation  can  arise  from  gaps  in  institutional  capacity  and  decision-­‐making.    Since  the  
passage  of  the  new  building  bylaws,  there  has  been  poor  monitoring  of  how  building  permits  are  
issued.  Under  the  74th  Amendment,  urban  local  bodies  can  issue  which  allow  building,  and  
submit  these  to  GMDA.  Thus  far,  there  have  been  no  penalties  against  government  officials  who  
distributed  “No  Objection  Certificates”  (NOCs),  in  what  should  have  been  protected  areas.  There  
is  clear  acknowledgement  that  an  inadequate  monitoring  of  the  permit  system  has  contributed  
to  increased  flood  impacts.  Even  if  strong  planning  and  policies  offered  protection  for  water  
bodies,  and  agencies  had  the  necessary  support  and  resources  to  enforce  the  regulations,  
effective  enforcement  is  not  possible  without  clear  and  accurate  maps.  Many  of  the  maps  are  
not  in  a  digitized  form  and  are  outdated  making  planning  and  enforcement  difficult  for  agencies.  

Page  9  of  34  

GMDA  is  currently  in  the  process  of  digitizing  the  cadastral  maps  and  having  them  available  in  
GIS  format.    

Flooding  in  Guwahati  has  multiple  drivers  -­‐-­‐  rainfall  intensity,  topography,  land  use  plan  and  land  
use  changes,  natural  and  artificial  drainage  and  their  maintenance,  and  capacity  and  
effectiveness  of  urban  management  and  development  institutions,  amongst  others.  Some  of  the  
drivers  of  urban  flooding  are  beyond  the  direct  control  of  city  agencies.    Three  critical  flooding  
risk  factors,  we  found,  are  influenced  by  institutional  action  and  planning.    They  include  
increasing  siltation  from  the  hills,  reduced  absorptive  capacity  of  local  water  bodies  and  
wetlands,  and  the  poorly  performing  drainage  system  of  the  city.    Planning  and  decision-­‐making,  
funding  availability  and  coordination  of  action  across  agencies  affect  the  degree  to  which  
agencies  effectively  address  flooding  risks  at  the  city  and  neighborhood  levels.    Equally,  the  
management  of  floods  and  mitigating  their  impacts  when  they  do  occur  has  a  lot  to  do  with  
landuse  planning  and  infrastructure  development.  Repeated  flooding  events  have  negative  
impacts  on  a  range  of  development  sectors  from  health  and  education  to  industry  and  business.  
Improved  coordination  between  flood  management  and  city  development  agencies  would  be  a  
valuable  in  this  regard.  For  instance,  many  neighborhoods  suffer  more  from  the  impact  of  floods  
due  to  the  varying  levels  of  roads  as  a  consequence  of  road  relaying  that  result  in  houses  
remaining  waterlogged.  Similarly,  the  inadequacy  of  a  robust  public  transport  system  means  that  
people  in  some  neighborhoods  get  cut  off  when  a  single  arterial  road  goes  underwater.    The  
deplorable  conditions  of  some  low-­‐income  areas  and  slums  in  Guwahati  and  their  lack  of  
infrastructures  result  in  health  risks  for  all  in  the  city.  Greater  coordination  between  flood  
management  and  city  development  plans  as  well  as  coordination  to  ensure  a  systematic  
approach  can  result  in  mitigating  such  negative  impacts  of  floods  especially  to  vulnerable  
populations.  Lack  of  data  and  absence  of  integrating  flooding  risks  in  key  plans,  along  with  poor  
enforcement  of  protections  are  primary  contributors  to  the  increasingly  destructive  and  deadly  
floods  impacting  Guwahati.    The  importance  of  collecting  data  regularly  in  a  standardized  format  
and  sharing  it  on  a  single  database  cannot  be  adequately  emphasized.  Although  the  challenges  
are  great,  it  is  encouraging  that  many  of  the  primary  drivers  of  Guwahati’s  flooding  risks  are  
related  to  institutional  plans  and  action.  This  suggests  that  better  understanding,  dedicated  
effort  and  coordinated  action  of  agencies  and  stakeholders  is  critical,  along  with  infrastructure  
planning  and  enhancement,  in  helping  reduce  vulnerability  of  Guwahati  to  flooding  and  its  
impacts.    

Page  10  of  34  

  

 
 

 
RECOMMENDATIONS  FOR  
GUWAHATI  
 

Page  11  of  34  

Urban  flooding  risk  factors  are  integrally  connected  to  increasing  risk  of  extreme  rainfall  events  
due  to  climate  change.  Hence  both  short  term  and  long  term  interventions  need  to  be  
undertaken  to  reduce  the  risk  of  disasters  from  flooding  and  mitigating  its  impacts.  The  
emphasis  in  this  report  is  on  recommendations  towards  preventive  actions  to  reduce  the  risk  of  
disasters  rather  than  the  actions  during  flood  emergencies  or  immediately  after  towards  relief.  
Five  key  areas  of  intervention  are  detailed:  

1. Urban  Planning  and  Development  

2. Natural  Resources  (Hills  and  Water  bodies)  
3. Data,  Information  and  Decisions  
4. Natural  and  Artificial  Drainage  
5. Community  and  Institutions  
   

Page  12  of  34  

  
 

INTERVENTION  1:    

URBAN  PLANNING  AND  DEVELOPMENT  

   

Page  13  of  34  

  

M AINSTREAMING   F LOOD  AND   N ATURAL   D ISASTER   R ISK  IN  THE  

C ITY   M ASTER -­‐ PLAN  AND   D EVELOPMENTAL   P LANS  
In  the  course  of  project  we  evaluated  the  existing  city  level  plans  based  on  the  following  key  
questions  related  to  integration  of  disaster  risks  in  the  planning  document.    

> How  does  the  new  CMP  draft  deal  with  drainage,  flooding,  silting  and  landslides?  What  
does  a  superimposition  of  flooding  hotspots  on  the  new  land  use  map  reveal  for  
neighborhoods  and  key  arterials?    
> What  precautions  have  been  suggested  in  the  CMP  to  take  care  of  high  siltation  from  
surrounding  hill  development?  
> What  sections  of  the  population  are  likely  to  bear  the  brunt  of  flood  impacts,  15  years  
from  now  because  of  the  new  CMP  land  use  zoning?  Low-­‐income  populations,  by  
definition,  are  the  most  vulnerable.  What  does  the  CMP  say  about  land  use  zoning  for  
low  income?  Is  the  residential  zone  less  than  50%  of  the  suggested  national  standard?  

Integrating  disaster  risk  reduction  into  comprehensive  

master  plan  and  other  city  level  plans  
• Zoning  for  flood  and  landslide  prone  areas    
• Integrating  disaster  risks  into  Land-­‐use  planning  
• Development  control  regulations  incorporating  resilient  building  design  
• Clear  rules  for  water  bodies  conservation  act  and  hill  and  forest  conservation  act  
• Building  and  development  clearances  and  permissions  
• City/neighborhood  level  evacuation  plan    
• Integrating  disaster  risk  reduction  recommendation  into  Master  plan  
• Mainstream  DRM  into  urban  land-­‐use  planning  and  large  project  development    
• Plan  for  increasing  overall  coping  capacity  
• Auditing  and  monitoring  
• Develop  guidelines  for  resilient  and  resistant  building  design  

 
S TATUTORY  MEASURES    
> Rules  for  Water  bodies  Conservation  Act  need  to  be  formulated  and  implemented  
> Rules  for  Hill  and  Forest  Conservation  Act  need  to  be  formulated  and  implemented  
> Flood  risk  areas  and  flood  protections  need  to  be  integrated  into  the  recent  Building  
Bylaws  
 

Page  14  of  34  

  

F LOOD  AND   L ANDSLIDE   Z ONING  

Urban  flooding  risk  factors  in  Guwahati  are  integrally  connected  to  increasing  risk  of  extreme  
rainfall  events  due  to  climate  change.  Hence  both  short  term  and  long  term  interventions  need  
to  be  undertaken  to  reduce  the  risk  of  disasters  for  Guwahati  from  flooding  and  to  mitigate  its  
impacts.  The  emphasis  here  is  on  practical  recommendations  towards  preventive  actions  to  
reduce  the  risk  of  urban  flood  disasters.  Given  the  increasing  flooding  events  /severity  
increasing  proscribed  zones  in  terms  of  landslide,  flood  and  erosion  prone  areas  should  be  
clearly  demarcated  to  help  control  urban  development  and  to  further  minimize  the  risk  by  
developing  and  enforcing  bylaws.    

> Hill  and  forest  areas  that  have  been  designated  as  eco-­‐sensitive  zones  under  the  city’s  
Comprehensive  Master  Plan  (CMP)  should  not  be  developed.  
> Make  available  maps  of  Guwahati  that  clearly  show  flood  and  erosion  prone  areas,  and  
soils  unsuitable  for  percolation  and  zones  that  are  proscribed  for  siting  buildings  by  
using  available  sophisticated  high  resolution  remote  sensed  information  and  technically  
sophisticated  staff  and  faculty  of  NRSA,  IIT  and  Assam  Engineering  College,  amongst  
others.  .  
> Produce  a  companion  “How  to”  set  of  Guidelines  on  prohibited  practice,  Bad  Practice  
and  Good  Practice  in  terms  of  building  lay  out  and  construction,  small  drain  construction  
etc  
> Produce  “How  To”  campaign  materials  on  Terracing  and  Hill  Cutting,  Land  and  Road  
Development,  Building  on  Sloping  Land,  
> Increase  ground  vegetation  cover  to  reduce  runoff,  and  increase  absorptive  capacity.  
> Unscientific  hill  cutting  to  be  prohibited,  and  heavily  penalized  
> Conduct  training  of  private  contractors  and  construction  workers,  potentially  in  IIT  /  
Assam  Engineering  College,  on  good  practices  for  flood  resilient  building  and  
infrastructure.  

Zoning  for  hazard  prone  areas  

The  areas  covered  by  the  floodwaters  or  in  landslide  prone  areas  should  be  delineated  as  a  distinct  zone  
in  the  City  Zoning  plan,  with  further  classification  based  on  the  level  of  risk.  A  clear  delineated  area  will  
facilitate  effective  policies  and  actions  to  limit  risks  in  the  present  and  future  from  climate  change.  Some  
important  considerations  for  flood  zoning  and  related  actions  are:  

Page  15  of  34  

   Delineation  of  the  area:  Done  after  careful  examination  of  the  historical  flood  data  and  
consultation  with  the  local  community.  Key  objective  is  to  address  critical  assets,  most  vulnerable  
population,  and  minimizing  the  future  risks  of  climate  change  by  controlling  development.    

  Engaging  community:  Critical  to  the  effort  since  zoning  regulations  will  affect  them  in  multiple  
ways.  A  community  based  approach  to  mapping,  assessment  and  zoning  should  be  encouraged,  as  it  is  
helpful  in  arriving  at  socially  accepted  boundaries  and  regulations.    

  Critical  assets  and  vulnerable  population:  Critical  social  assets  such  as  school,  hospitals,  fire  
stations,  and  open  spaces  should  be  included  in  the  zone.  Provisions  should  be  made  for  vulnerable  
populations  such  as  elderly,  children,  and  economically  weaker  classes.    

  Periodic  assessments:  The  zones  and  related  regulations  should  be  periodically  reviewed,  with  
revisions  undertaken  as  needed.      

I NCREASE  LOW -­‐ INCOME  HOUSING  AND  LAND  ALLOCATION  FOR  

RESIDENTIAL  USES  IN   CMP  
> Plan  for  enhanced  number  of  affordable  housing  for  lower  income  families  (to  take  
pressure  off  hills  and  forests  surrounding  Guwahati).  Implement  plan  for  three  “New  
Towns”  and  for  enhancing  density  of  existing  residential  areas  in  new  Master  Plan.  
> Draft  revision  of  the  CMP  proposes  dedicating  24%  of  land  for  residential  use,  much  less  
than  the  45%-­‐50%  recommended  by  the  national  Ministry  of  Urban  Development.  Re-­‐
examine  CMP  to  enhance  land  allocation  for  residential  use.  

 
C ONSISTENTLY  ENFORCE  REGULATIONS  
> Enforce  building  and  land  use  regulations  in  a  clear  and  consistent  manner.  
> Set  clear  guidelines  and  timetable  for  firmly  dealing  with  hill  and  forest  encroachments.  
> Launch  major  awareness  campaigns  on  “rights  and  wrongs”  of  hill  area  development,  
with  specific  delineation  of  actions  that  would  be  taken  against  encroachers  in  order  to  
“depoliticize”  evictions.  Make  elected  officials  spokespeople  in  a  “right  and  wrong”  
campaign.    Systematize  reporting  for  spatial  mapping,  for  viewing  by  government  
agencies  as  well  as  the  public.  With  data  generated,  evaluate  success  or  failure  over  the  
medium  term  of  eviction  drives.  

Page  16  of  34  

 > Standardize  “no  objection”  certifications  for  hill  cutting  and  for  the  “completion  
certification”  across  the  many  agencies  (GMDA,  ULBs  such  as  GMC,  local  town  
committees  and  panchayats).    Upload  them  real-­‐time  on  the  web  for  public  scrutiny  and  
feedback.  
> Clarify  and  enforce  maximum  height  in-­‐fill  within  private  compounds.    If  greater  than  
permitted,  normal  run  off  onto  street  drain  should  not  be  allowed;  need  to  install  soak  
pits  within  compound.    
> Under  the  GDD  2014  building  bylaws,  construction  can  occur  a  minimum  of  15  ms  from  
any  river  or  beel.  Map  physical  reality  to  identify  major  deviations.  Plan  steps  for  
dealing,  looking  at  big  picture  impacts.    

 
S YSTEMATIZE  EVICTIONS  OF  ENCROACHERS    
> Develop  draft  SOP,  and  seek  public  consultation  and  feedback.  
> Finalize  SOP  on  evictions  and  widely  publicize  -­‐  send  copies  to  all  real  estate  developers,  
contractors  and  construction  input  providers  in  the  city  of  Guwahati.  Request  them  to  
educate  the  public  that  they  come  into  contact  with.    
> Hold  training  of  Circle  Officers,  for  example,  on  SOP  implementation  to  make  clear  the  
need  for  consistent  application,  redressal  and  resolution.  

 
I NFRASTRUCTURE  AND   S ERVICES  
Roads  and  transport  
> Assess,  rationalize,  and  modify  all  road  levels  to  allow  water  to  flow  naturally.  Road  
levels  should  be  matched  to  other  road/drain  levels  and  to  the  levels  of  the  houses  in  
the  area  (since  many  road  levels  are  higher  than  the  house  levels).  
> Identify  roads  that  are  frequently  flooded  and  publicize  alternative  routes.  Locate  boats  
in  critical  places  for  emergency  evacuation.  
> Identify  bridges  that  are  routinely  inundated.  Reinforce  structure  of  bridges  and  
publicize  alternative  routes.  

Water  supply  
> Identify  level  of  water  treatment  plants.  Raise  levels  of  water  treatment  plants  if  found  
lacking.  
> Investigate  potential  flashpoints  where  sewage,  flood  water,  and  treated  water  get  
mixed  

Page  17  of  34  

 > Identify  alternative  water  sources  as  sources  for  water  tankers  
> Identify  neighborhoods  that  get  frequently  flooded  and  build  water  tanks  on  higher  
ground.    

Sewage  Treatment  
> An  underground  sewage  system  is  urgently  necessary  for  the  city,  since  a    minority  of  
the  area  is  currently  serviced  by  such  a  system.  The  absence  of  sewage  segregation  is  a  
major  health  hazard  during  floods  as  sewage  and  solid  waste  mix  with  the  floodwaters.    
> If  a  UGD  system  cannot  be  installed  throughout  the  city  due  to  budgetary  constraint,  
septic  tanks  need  to  be  scientifically  designed  and  constructed  and  maintained  in  
neighborhoods  without  UGD.  This  would  allow  UGD  to  be  installed  in  a  phased  manner  
throughout  the  city  
> No  sewage  connections  should  be  permitted  with  outfall  onto  open  storm  water  drains  
> Existing  sewage  treatment  plants  that  are  either  too  close  to  the  river  or  in  low  lying  
areas  prone  to  inundation  need  to  be  elevated  and  moved  from  contaminating  the  river.  
> Not  having  proper  sewage  management  is  also  leads  to  pollution  of  ground  water  
sources.    

Power  
> Relocate  the  main  transformers  to  higher  ground  
> In  neighborhoods  that  get  frequently  flooded,  install  solar  power  generators  as  back  ups  

Building  design,  resilience  and  resistance  

− Retrofit  buildings  to  meet  national  norms  and  standards  for  resiliency  to  flooding  

Comprehensive  Solid  Waste  Management  Plans  

> Revisit  Guwahati  comprehensive  solid  waste  management  plans  to  identify  which  wards  
are  successful  and  which  wards  are  chronically  lagging.    
> Develop  a  specific  ward-­‐wise  plan,  involving  public  citizens  who  would  be  Waste  
Champions  for  the  Ward  to  work  with  the  NGOs  /  garbage  collection  contractors.    
> Run  annual  competition  for  Cleanest  Ward  Prize  to  engender  socialization  of  public  
hygiene  values  
> Develop  a  medium  and  long-­‐term  plan  modeled  after  successful  urban  comprehensive  
solid  waste  management  (including  bioenergy  production,  minimizing  landfills,  aiding  
informal  waste  collectors  cooperatives  etc.)    
> Build  neighborhood  solid  waste  collection  areas  on  higher  ground  

Page  18  of  34  

 > Build  garbage  dumping  ground  outside  city  on  higher  ground  with  impervious  bed  to  
prevent  contamination  of  ground  water  

   

Page  19  of  34  

  

INTERVENTION  2:    

NATURAL  RESOURCES    

(HILLS  AND  WATER  BODIES)  

 

   

Page  20  of  34  

P ROTECTION  OF   W ATER   B ODIES  
Public  Consultations  
> Hold  a  series  of  public  consultation  on  “Why  are  we  Destroying  Guwahati’s  Wetlands  
and  Water  Bodies?”    
> Develop  detailed  maps  of  Deepor  Beel,  Silsako  Beel,  Bondjaan  Beel,  Borsola  Beel  and  
Sarusala  Beel  (that  are  protected  by  Guwahati  Water  Bodies  Act  of  2008/10).    
> Led  by  the  Water  Resources  Department  /GMDA,  present  maps  of  “then  and  now”  of  
these  key  water  bodies.    
> Bring  in  experts  from  IIT  Guwahati,  Assam  Engineering  College  and  other  institutions  to  
make  presentations  on  “value  of  water  bodies”  to  Guwahati.    Discuss  planning  solutions  
with  the  public  to  stem  unplanned  land  use  changes,  poor  building  practices,  waste  
dumping  and  stone  quarrying  practices.    

Citizen  Forums  
> Create  Citizens  Public  Forum  to  monitor  water  bodies  encroachments  with  periodic  
reporting  to  Circle  Officers,  and  help  them  with  their  responsibilities  to  ensure  
permanent  measures  are  completed  following  encroachments  (such  as  erecting  walls).    

Formalize  Rules  and  Regulations  for  Existing  Acts  

> As  noted  in  SUI  2C  Report  (2014),  since  the  water  bodies  covered  by  the  Guwahati  
Water  Bodies  Act  of  2008  are  part  of  a  larger  watershed  system  (beyond  the  GMDA  
limits),  conservation  and  protection  measures  of  water  bodies  within  the  Guwahati  
Metropolitan  Area  requires  consideration  of  the  larger  watershed  landscape  (See  Figure  
7  –  Planning  Gaps  report,  pg.  15).  

Wetlands  and  Swamps  

> Cleaning  and  removal  of  solid  waste  and  sewage  
> Planting  and  protection    
> Wetlands  and  environmental  buffers  
> Integrated  Watershed  management  

 
S YSTEMATIZE  SETTLEMENT  AND  CONSTRUCTION  IN  ECO -­‐ SENSITIVE  
ZONES  
> Hill  and  forest  areas  that  have  been  designated  as  eco-­‐sensitive  zones  in  the  city  
Comprehensive  Master  Plan  (CMP)  should  not  be  developed.    

Page  21  of  34  

 > Produce  “How  To”  campaign  materials  on  Terracing  and  Hill  Cutting,  Land  and  Road  
Development,  Building  on  Sloping  Land,    
> Increase  ground  vegetation  cover  to  reduce  runoff,  and  increase  absorptive  capacity.  
> Unscientific  hill  cutting  to  be  prohibited,  and  heavily  penalized  

 
F ORESTS  AND   H ILLS  
Housing  
> Relocate  illegal  and  poorly  sited/designed  housing  development  of  hills  as  necessary  
> Provide  authorized  low-­‐income  housing  as  alternatives  to  those  in  flood  and  mudslide  
safe  areas  
> Retrofit  and  design  buildings  for  disaster  resilience  (Landslide)  

Hills  and  Forests  

> Clearly  define  hills  and  forest  land  and  their  boundaries  
> Remove  unauthorized  construction  and  encroachment  
> Build  channels  to  minimize  erosion  
> Reforest  degraded  forest  areas  on  hills  
> Reinforce  and  secure  cut  surfaces  in  hills    

 
H ILL   S LOPE  CONSERVATION  
Pressure  on  the  hills  in  and  forest  areas  have  been  increasing  for  over  a  decade  in  Guwahati  
Metropolitan  area,  which  is  growing  and  expanding  at  a  rapid  rate.  Hills  slopes  are  being  cut  
and  modified  to  house  the  new  construction  all  over  the  city.  These  activities  on  the  hills  have  
contributed  to  the  heavy  siltation  that  has  increased  the  flood  risks  in  several  parts  of  the  city.  
Conservation  of  hill  slopes  forms  a  critical  part  of  actions  for  building  resilience.  The  box  below  
outlines  some  of  the  methods  that  can  be  utilized  for  conserving  hill  slopes  based  on  
geomorphology,  steepness  and  level  of  development.  

Methods  and  application  

Several  methods  have  been  used  in  various  parts  of  the  world  to  counter  erosion  of  soil  on  the  hill  
slopes.  On  assessment  of  the  methods  and  application  in  context  of  Guwahati  we  recommend  
afforestation,  terracing  and  contour  bunding,  down-­‐drain,  increasing  soil  permeability,  catch  basin  or  
siltation  pond,  gully  formation  and  live  bush  mats.      

Page  22  of  34  

  
 

INTERVENTION  3:    

NATURAL  AND  ARTIFICIAL  DRAINAGE  

Page  23  of  34  

I NTEGRATED   U RBAN   D RAINAGE  AND   E NHANCING  PERFORMANCE  
OF  EXISTING  DRAINAGE  SYSTEM  
> Develop  a  “One  Drain  Map”  for  all  of  Guwahati’s  major  and  secondary  drains,  and  over  
time  to  include  tertiary  drains.  One  does  not  exist  now  and  hence  there  is  no  collective  
agreement  amongst  agencies  on  location  of  underground  drains  (AT  Road,  J  Ali  Road,  
Lachit  Nagar  Road,  Ambari  Road,  Hidayetpur  Road,  GS  Road,  GN  Bordoloi  Road  have  
been  said  to  have  /  or  had  /  or  not  had  underground  drains).    
> On  the  One  Drain  Map  identify  chronic  urban  flooding  areas,  as  a  priority  action  for  
GMC.  Would  be  a  good  complement  to  the  WRD’s  “Comprehensive  plan  for  
management  of  drainage  congestion  problem  of  Guwahati’s  natural  drainage  channels  
(2013).      
> In  each  chronic  flooding  area  identify  3  top  geographically  specific  reasons  for  flooding  
and  potential  resolution  (shops  and  houses  constructed  narrowing  the  channel  /  
preventing  dredging  machine  accessing  drains;  permanent  covering  of  drains  with  no  
arrangement  for  access).      
> Identify  system  wide  defects  (such  as  regular  backflow  because  discharge  point  of  drain  
is  lower  than  receiving  canal).  Formulate  a  list  of  “Doables”  from  the  easiest  to  the  most  
difficult,  and  have  the  agencies  (WRD,  GMC,  PWD  etc.)  develop  a  plan  to  deal  with  the  
problems.    
> Identify  critical  systemic  problems  that  require  heavy  investment  (for  example  
increasing  the  size  of  drains,  rerouting  of  channels,  re-­‐leveling  of  secondary  drains  
relative  to  primary  drains,  extensive  reinforcing  embankment  walls),  and  develop  a  
“One  Drain  Plan  of  Action”  for  Guwahati  for  government  funding.  

Subject  key  assumptions  of  system-­‐wide  drainage  to  CC  and  

population  growth  considerations  
> Re-­‐calculate  drainage  by  varying  basic  assumptions.  Sluice  gates  at  Bharalumukh,  for  
example,  have  fixed  pumps  with  capacity  10.47  cubic  ms/second.  Capacity  sufficient  
under  two  assumptions:  rainfall  would  last  only  for  a  few  hours  and  the  Bharalu  River  
would  rise  only  by  a  meter.  Vary  the  2  assumptions  –  longer  and  more  intense  rainfall  
events  in  the  GMA;  and  Bharalu  River  rise  by  1.25,  1.5  and  2  meters.  How  can  the  
resulting  risk  me  minimized?  Increase  the  pumps  capacity  –  what  cost  for  what  
perceived  and  real  benefits?  
> Similar  exercise  to  be  carried  out  for  backflow  hot  spots,  desiltation  volumes,  pump  
capacity  in  chronic  flooding  areas  –  Anil  Nagar,  Tarun  Nagar,  system-­‐wide  impacts  of  
flooding  due  to  increase  in  hard  surfacing  area  of  Guwahati.    

Page  24  of  34  

 > The  spatial  pumping  plan  should  be  integrally  part  of  a  real-­‐time  flood  monitoring  
system,  utilizing  crowd  sourcing  for  details  at  the  sub-­‐neighborhood  level.  The  flood  
monitoring  system  should  be  accessible  to  the  public  on  the  web.    
> Ensure  that  the  new  CMP  land  use  is  backed  by  sound  drainage  plan  to  minimize  
flooding  risk  (draft  CMP  not  so).  

Sustainable  Urban  Drainage  Systems  

Sustainable  drainage  systems  (SuDS)  provide  an  alternative  to  the  direct  channeling  of  surface  
water  through  networks  of  pipes  and  sewers  to  nearby  watercourses,  and  will  be  effective  in  
reducing  pressure  on  the  existing  drains  following  heavy  rainfall  events.  Key  components  that  
are  recommended  as  a  part  of  city-­‐level  SUDS  initiative  are:    

> Inlet  control  

> Infiltration  devices  
> Vegetated  surfaces  
> Permeable  paving  
> Filter  drains  
> Infiltration  basins  
> Detention  ponds  
> Retention  ponds  
> Constructed  wetlands  

 
N ATURAL   D RAINAGE  
> Install  and  clean  filters  and  silt  traps  to  drains  and  streams  that  drain  into  streams,  lakes,  
and  rivers    
> Remove  unauthorized  development  and  encroachment  in  and  around  rivers,  streams,  
and  water  bodies  
> Establish  and  secure  boundaries  and  edges.  Security  is  in  terms  of  reinforcement  to  
keep  from  collapsing  and  also  secured  from  encroachment  and  infilling.  
> Clean  and  De-­‐silt  drains  
> Remove  excessive  plant  growth  in  the  lakes  and  ponds  
> Install  visible  water  level  monitors  at  regular  distances  in  all  rivers,  streams,  lakes,  and  
ponds  
> Increase  effective  width  of  flow  areas  and  relief  channels  
> Construct  barrier  embankments  and  flood  walls  

Page  25  of  34  

Drains  (Short  Term)  
− Timely  and  periodic  Cleaning  and  De-­‐silting  
− Install  and  clean  silt  traps  
− Install  metal  covers  (with  locks  to  prevent  theft)  on  drains  to  prevent  sold  waste  
dumping  
− Assess,  rationalize,  and  modify  road  levels  to  allow  water  to  flow  down.  
− Identify  and  remove  culverts  and  blockages  on  drains  and  streams  

 
S ILT   T RAP   P LAN  
> Develop  a  Guwahati-­‐wide  Silt  Trap  Plan,  with  systematic  attention  paid  to  priority  silting  
locations,  demand-­‐led  plan  for  use  of  silt  material  (construction  industry,  urban  
farming/gardens  etc.).  Use  expertise  of  NESAC,  IIT,  and  Assam  Engineering  on  the  
technical  side,  and  IIM  Calcutta  on  the  management  to  develop  the  STP.    
> Develop  a  SOP  for  drain  clearing,  with  a  clear  metric  and  transparent  payment  system  
that  is  posted  on  the  web.    
> Develop  and  implement  an  M&E  system  for  drain  and  silt  clearing,  that  cuts  across  
various  departments  (PWD,  WRD,  DDMA  etc.).      
> Post  drain  clearing  calendar  on  the  web  for  public  viewing,  along  with  date  and  
quantum  of  silt  cleared.    
> Use  desilting  data  to  map  the  annual  silt  cycle,  to  have  a  better  idea  of  the  volume  and  
it’s  timing  to  issue  contracts.  Such  a  data  would  also  make  for  a  better  common  M&E  
across  departments  for  drain  desilting.  

Environmental  
> Wetlands  and  Swamps  
o Remove  unauthorized  construction  and  encroachment  
o Clean  and  remove  solid  waste  and  sewage  
o Enhance  planting  around  wetlands  and  water  bodies    
> Hills  and  Forests  
o Remove  unauthorized  construction  and  encroachment  
o Site  channels  to  minimize  erosion  
o Undertake  intensive  forestry  on  hillsides  
o Reinforce  and  secure  steep  cuts  on  hills    
> Natural  Drainage  systems  with  
o Enhance  natural  infiltration  via  retention  ponds  

Page  26  of  34  

 o Slow  down  rate  of  run  off  through  detention  ponds  

 
I NTEGRATED   W ATERSHED   M ANAGEMENT  
GMA  area  is  divided  into  six  major  drainage  basins  (Bharalu  Basin,  Deepar  Basin,  Silsako  Basin,  
Foreshore  Basin,  North  Guwahati  Basin  and  Kalmoni  Basin),  which  are  ultimately  drained  into  
the  River  Brahmaputra  either  directly  or  through  various  drainage  channels  and  reservoirs.  
These  drainage  basin  along  with  the  catchment  areas  is  an  ideal  planning  unit  for  managing  
changes  accompanying  development  both  on  upland  as  well  as  lowlands.    

   

Page  27  of  34  

  
 

 
INTERVENTION  4:    

DATA,  INFORMATION  AND  DECISIONS    

 

   

Page  28  of  34  

D ATA   M ANAGEMENT  AND   D ECISION   S UPPORT   S YSTEMS  
Prevention  and  mitigation  efforts  in  Guwahati  can  be  seen  as  actions  for  short-­‐term  results.  
Actions  related  to  resiliency  in  the  long  term  are  currently  limited.  One  of  the  key  reasons  is  the  
unavailability  of  useful  data.  A  managed  data  storage  housed  by  a  key  institution  will  prove  
useful  for  effective  and  informed  decision  making  aimed  at  building  citywide  resiliency.  The  
database  should  have  two  key  components:  

1. Data  storage  and  Dissemination:  Ensuring  better  mechanism  for  storage  and  access  of  
data  for  all  relevant  agencies.  
2. Spatial  Decision  Support  Systems:  Visualizing  data  related  to  disaster  events,  
reconstruction,  prevention,  relief  and  rescue  efforts,  and  other  key  developments  
parameters  on  geospatial  system.      
3. Develop  a  SOP  for  monitoring  of  flood  events  (level  and  duration)  to  be  employed  
consistently  by  all  agencies.  

 
F LOOD   R EPORTING   S YSTEM    
Lack  of  information  about  flood,  inundation  and  landslide  events  in  the  city  is  a  critical  issue.  
Currently,  the  flood  events  are  reported  only  in  media,  with  a  focus  on  major  cases  and  do  not  
cover  flooding  events  evenly  across  the  city.  Agencies  and  city  officials  have  information  on  the  
flooding  events  by  the  nature  of  their  role  and  jurisdiction.  While,  these  reports  have  been  used  
frequently  to  provide  relief,  rescue  and  selected  mitigation  effort,  they  are  not  very  effective  in  
planning  actions  for  long-­‐term  prevention  and  risk  reduction.    

We  recommend  a  multi-­‐platform  map  based  disaster  reporting  system  which  can  be  accessed  
on  the  web  with  mobile  applications,  having  one  centralized  database  to  facilitate  disaster  
related  data  collection,  management  and  analysis.  Both  residents  as  well  as  official  with  varying  
administrative  privileges  and  access  controls  can  use  such  a  system.  

Page  29  of  34  

The  system  could  be  based  on  the  prototype  built  by  SUI,  which  was  used  to  collect  data  and  
was  hosted  on  www.ireportflood.org  (2014-­‐2015).    

Web  and  mobile  based  landslide  reporting  application    

For  citizen  participation  and  contribution  to  reporting  of  incidents  and  creation  of  a  shared  
database,  a  web  and  mobile-­‐based  landslide  application  should  be  developed  and  promoted.  
The  prototype  built  by  SUI  for  reporting  flooding  events  is  an  example.  The  application  will  
prove  useful  in  collecting  data  from  all  neighborhoods  of  the  city  related  to  minor  and  major  
events  which  otherwise  might  not  be  recorded.  Officials  and  departments  can  extend  the  tool  
for  use  as  well.    

Reported  data    
1. Time  of  events    
2. Location  of  event  (Spatial/  map  based)  
3. Severity  of  the  event  
4. Direct  Impacts  
o Human  Causalities  
o Number  of  Properties  Affected  
o Roads,  Road  Sections  Submerged  
o Any  Structural  Damages  
5. Other  Impacts  
6. Tactical  Response  and  Relief  Measures  (only  for  officials)  
7. Other  Remarks  

 
U RBAN  FLOOD  EARLY  WARNING  
System  with  two  components:  forecast  for  heavy  rain,  and  localized  flooding.  Guwahati  lacks  a  
formal  local  warning  system  for  urban  flooding.  NESAC’s  Flood  Early  Warning  System  for  
riverine  flooding  is  extremely  useful  for  upstream  information.  One  Flood  Map,  with  data  
overlays  from  previous  years  –  both  on  flood  incidents  and  on  response  work  undertaken,  
would  be  very  useful  for  planning  evidence-­‐based  solutions.    It  would  be  also  be  the  basis  for  
relief  operations.  A  SOP  should  describe  flood  reporting  for  all  departments  and  agencies  (so  
that  the  current  diversity  in  reporting  between  say  DDMA  and  PWD  divisions  do  not  occur).    

> Lack  of  consideration  of  flood  risks  in  planning  of  land  use,  transportation  and  
population  densities  
> Lack  of  system-­‐wide  plans,  coordination  and  implementation  for  adequate  drainage  
> Lack  of  detailed  plans  to  address  hill  cutting  and  wetland  degradation    

Page  30  of  34  

 > Lack  of  clarity  on  floods  risk  areas  and  flood  protections  in  recent  Building  Bylaws  
> Lack  of  affordable  housing,  leading  to  encroachment  of  water  bodies  and  wetlands  
> Limited  planning  scope  to  address  encroachment  of  water  bodies  and  wetlands  
> Insufficient  drainage  capacity  
> Insufficient  oversight  to  ensure  implementation,  coordination  and  effective  
enforcement  of  key  policies  and  plans  
> Inadequate  collection  and  sharing  of  data  

Water  level  monitoring  and  recording  system  

A  simple  system  for  regularly  recording  and  monitoring  water  levels  at  key  locations  should  be  
installed.  Regional  watershed,  natural  drains,  and  flooding  patterns  are  interrelated  and  
monitoring  of  water  levels  and  flows  would  be  extremely  helpful  in  planning  for  mitigations  
efforts.  Automated  electronic  sensor  devices  that  will  provide  real  time  data  should  be  
installed  at  key  locations.  

   

Page  31  of  34  

  
 
 
INTERVENTION  5:    

COMMUNITY  AND  INSTITUTIONAL  

FRAMEWORK  
   

Page  32  of  34  

  

A WARENESS  AND   C APACITY   B UILDING  

> Officials  
> Businesses  
> Community/Citizens  

Disaster  risk  communication  at  community  level  

Communication  is  an  important  component  in  community  based  risk  management  approach  in  
ensuring  that  stakeholders  agree  on  identification,  assessment  and  risk  management  measures.  
All  the  stakeholders  including  government,  local  authorities,  the  private  sector,  scientific  
organizations,  employers  and  employees,  the  news  media,  civil  society  organizations,  
environmentalists,  at  risk  groups,  individual  citizens  and  those  whose  actions  induce  risks  
should  be  considered  while  developing  communication  and  awareness  building  strategies.  Key  
recommendations  include  

> Develop  citizen  flood  reporting  system  

> Develop  communication  material  and  preparedness  guides  for  communities    
> Periodically  (Pre-­‐  monsoon  and  post-­‐monsoon)  organize  an  all  stakeholders  meeting  to  
review  the  events,  measures  and  future  actions  

Community  Awareness  and  Capacity  Building  

1. Immediate    
a. Citizen  Flood  Reporting  
b. Community  Based  Relief,  Rescue  and  Rehabilitation  
2. Short  Term  
a. Community  Based  Risk  Assessment    
b. Community  empowerment  (Specialized  Committee  or  something  else)  
c. Awareness  building  about  solid  waste,  drains  and  flooding  
d. Awareness  building  about  hills  and  siltation  
e. Community  level  afforestation  drives  
3. Institutional  
a. Institutional  Coordination  
b. Information  management  

Institutional  
> Institutional  coordination  and  streamlining  is  critical.  For  this  we  recommend  the  
establishment  of  an  Urban  Flood  Management  cell/nodal  committee  within  the  ASDMA  
that  has  representatives  from  key  departments  and  agencies  as  well  as  expert  advisors,  

Page  33  of  34  

 chaired  by  the  Chief  Secretary.  This  cell/nodal  committee  will  be  empowered  to  direct  
all  activities  pertaining  to  flood  management  and  landslides.    
> Standardize  operating  procedures  regarding  disaster  risk  prevention  

Community  Based  
> Identify  the  most  vulnerable  neighborhoods  and  communities  
> Citizen  Flood  Reporting  
> Community  Based  Relief,  Rescue  and  Rehabilitation  
> Community  Based  Risk  Assessment    
> Community  empowerment  through  establishing  special  citizen  led  communities    
> Awareness  building  about  solid  waste,  drains  and  flooding  
> Awareness  building  about  hills  and  siltation  
> Community  level  afforestation  drives  
> City/neighborhood  level  evacuation  plan  
> Building  and  enhancing  community  level  capacities  
> Building  on  informal  institutions  such  as  Namghars  to  disseminate  information  as  
well  as  provide  relief  during  flood  emergencies.  

Page  34  of  34