1 DEFINITION OF DISASTER Disaster is a crisis situation that far exceeds the capabilities. - Quarentelly, 1985.

Disaster is defined as a crisis situation causing wide spread damage which far exceeds our ability to recover. Thus, by definition, there cannot be a perfect ideal system that prevents damage, because then it would not be a disaster. It has to suffocate our ability to recover. Only then it can be called as disaster. Disasters are not totally discrete events. Their possibility of occurrence, time, place and severity of the strike can be reasonably and in some cases accurately predicted by technological and scientific advances. It has been established there is a definite pattern in their occurrences and hence we can to some extent reduce the impact of damage though we cannot reduce the extent of damage itself. Types of Disaster Disasters are mainly of 2 types, 1. Natural disasters. Example earthquakes, floods, landslides, etc. 2. Man made disasters. Example war, bomb blasts, chemical leaks, etc. The phases of all disasters, be it natural or man made, are the same. The disasters often differ in quantity of damage caused or in quality of the type of medical consequences. For example earthquakes cause a lot of physical injury and fractures, floods cause drowning deaths and infections, chemical leaks cause toxic manifestations, etc. Business Definition for: Disaster Management the actions taken by an organization in response to unexpected events that are adversely affecting people or resources and threatening the continued operation of the organization. Disaster management includes: - the development of disaster recovery plans,( for minimizing the risk of disasters and for handling them when they do occur,) and the implementation of such plans. Disaster management usually refers to the management of natural catastrophes such as fire, flooding, or earthquakes. Related techniques include crisis management, contingency management, and risk management. Disaster/emergency management is the discipline of dealing with and avoiding risks. It involves preparing for a disaster before it happens, disaster response (e.g. emergency evacuation, quarantine, mass decontamination, etc.), as well as supporting, and rebuilding society after natural or human-made disasters have occurred. 2 In general, any Emergency management is the continuous process by which all individuals, groups, and communities manage hazards in an effort to avoid or ameliorate the impact of disasters resulting from the hazards. Actions taken depend in part on perceptions of risk of those exposed. Effective emergency management relies on thorough integration of emergency plans at all levels of government and non-government involvement. Activities at each level (individual, group, community) affect the other levels. It is common to place the responsibility for governmental emergency management with the institutions for civil defense or within the conventional structure of the emergency services. In the private sector, emergency management is sometimes referred to as business continuity planning.

Other terms used for disaster management include: -Emergency Management which has replaced Civil defense, can be seen as a more general intent to protect the civilian population in times of peace as well as in times of war. -Civil Protection is widely used within the European Union and refers to governmentapproved systems and resources whose task is to protect the civilian population, primarily in the event of natural and human-made disasters. -Crisis Management is the term widely used in EU countries and it emphasizes the political and security dimension rather than measures to satisfy the immediate needs of the civilian population. -Disaster risk reduction An academic trend is towards using the term is growing, particularly for emergency management in a development management context. This focuses on the mitigation and preparedness aspects of the emergency cycle (see below). DISASTER MANAGEMENT CYCLE- GENERAL Disaster management cycle includes the following stages/ phases 1. Disaster phase 2. Response phase 3. Recovery/ Rehabilitation phase 4. Risk Reduction/ Mitigation phase 5. Preparedness phase *1Disaster phase The phase during which the event of the disaster takes place. This phase is characterized by profound damage to the human society. This damage / loss may be that of human life, loss of property, loss of environment, loss of health or anything else. In this phase, the population is taken by profound shock.
1 Not

generally considered as phase, but the incident that promotes the actual 4 phases

3 Response phase This is the period that immediately follows the occurrence of the disaster. In a way, all individuals respond to the disaster, but in their own ways Recovery phase When the immediate needs of the population are met, when all medical help has arrived and people have settled from the hustle bustle of the event, they begin to enter the next phase, the recovery phase which is the most significant, in terms of long term outcome. It is during this time that the victims actually realize the impact of disaster. It is now that they perceive the meaning of the loss that they have suffered. Risk reduction phase During this phase, the population has returned to predisaster standards of living. But, they recognize the need for certain measures which may be needed to reduce the extent or impact of damage during the next similar disaster. For example, after an earthquake which caused a lot of damages to improperly built houses, the population begins to rebuild stronger houses and buildings that give away less easily to earthquakes. Or, in the case of tsunami, to avoid housings very close to the shore and the development of a green belt- a thick stretch of trees adjacent to the coast line in order to reduce the impact of the tsunami waves on the land. This process of making the impact less severe is called Mitigation. Preparedness phase This phase involves the development of awareness among the population on the general aspects of disaster and on how to behave in the face of a future disaster. This includes education on warning signs of disasters, methods of safe and successful evacuation and first aid measures.

It is worth to note that the time period for each phase may depend on the type and severity of the disaster.

Phases and professional activities

The nature of emergency management is highly dependent on economic and social conditions local to the emergency, or disaster. Experts have long noted that the cycle of emergency management must include long-term work on infrastructure, public awareness, and even human justice issues. This is particularly important in developing nations. The process of disaster management involves four phases: mitigation, preparedness, response, and recovery. 4
A graphic Representation of the Four Phases in Disaster Management

1-Mitigation Mitigation efforts attempt to prevent hazards from developing into disasters altogether, or to reduce the effects of disasters when they occur. The mitigation phase differs from the other phases because it focuses on long-term measures for reducing or eliminating risk. 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. Mitigative 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 nonessential land like parks to be used as flood zones), and insurance. Mitigation is the most cost-efficient method for reducing the impact of hazards. However, mitigation is not always suitable and structural mitigation in particular may have adverse effects on the ecosystem. A precursor activity to the mitigation is the identification of risks. Physical risk assessment refers to the process of identifying and evaluating hazards. In risk assessment, various hazards (e.g. earthquakes, floods, riots) within a certain area are identified. Each hazard poses a risk to the population within the area assessed. The hazard-specific risk (Rh) combines both the probability and the level of impact of a specific hazard. The equation below gives that the hazard times the populations vulnerability to that hazard produce a risk. The higher the risk, the more urgent that the hazard specific vulnerabilities are targeted by mitigation and preparedness efforts. However, if there is no vulnerability there will be no risk, e.g. an earthquake occurring in a desert where nobody lives. 5
Components of Risk Management
(natural event) (social factors)

Risk Factors Hazards potentially damaging exogenous events whose probable characteristics and frequency of occurrence can be estimated Vulnerability intrinsic characteristics of the elements at risk that determine how damaged they would be if they experienced a hazard event of some level

Dimensions of vulnerability assessment Physical vulnerability-analyze impacts of events on assets such as building, infrastructure, agriculture Social Vulnerability- estimate impacts of events on highly vulnerable groups such as the poor, coping capacity, status institutional structure designed to help coping, awareness of risk Economic vulnerability-potential impacts of hazards on economic assets and processes (business interruption, secondary effects) Environmental vulnerability-Degraded environmental quality limits the natural resilience to hazard effects and reduces environmental buffering of effects Elements at risk: examples people (communities, countries, the poor) infrastructure economic activities/assets plant/animal species environmental services . . . 6 2- Preparedness In the preparedness phase, emergency managers develop plans of action for when the disaster strikes. Common preparedness measures include the communication plans with easily understandable terminology and chain of command development and practice of multi-agency coordination and incident command proper maintenance and training of emergency services development and exercise of emergency population warning methods combined with emergency shelters and evacuation plans stockpiling, inventory, and maintenance of supplies and equipment An efficient preparedness measure is an emergency operations center (EOC) combined with a practiced region-wide doctrine for managing emergencies. Another preparedness measure is to develop a volunteer response capability among civilian populations. Since, volunteer response is not as predictable and planable as professional response, volunteers are most effectively deployed on the periphery of an emergency. Another aspect of preparedness is casualty prediction, the study of how many deaths or injuries to expect for a given kind of event. This gives planners an idea of what resources need to be in place to respond to a particular kind of event. 3- Response The response phase includes the mobilization of the necessary emergency services and first responders in the disaster area. This is likely to include a first wave of core emergency services, such as firefighters, police and ambulance crews. They may be supported by a number of secondary emergency services, such as specialist rescue teams. In addition volunteers and non-governmental organizations (NGOs) such as the local Red Cross branch may provide immediate practical assistance, from first aid provision to providing food and counseling. A well rehearsed emergency plan developed as part of the preparedness phase enables efficient coordination of rescue efforts. Emergency plan rehearsal is essential to achieve optimal output with limited resources. In the response phase, medical assets will be used in accordance with the appropriate triage of the

affected victims. Where required, search and rescue efforts commence at an early stage. Depending on injuries sustained by the victim, outside temperature, and victim access to air and water, the vast majority of those affected by a disaster will die within 72 hours after impact. Individuals are often compelled to volunteer directly after a disaster. Volunteers can be both a help and a hindrance to emergency management and other relief agencies. 7 4-Recovery The aim of the recovery phase is to restore the affected area to its previous state. It differs from the response phase in its focus; recovery efforts are concerned with issues and decisions that must be made after immediate needs are addressed. Recovery efforts are primarily concerned with actions that involve rebuilding destroyed property, reemployment, and the repair of other essential infrastructure. An important aspect of effective recovery efforts is taking advantage of a window of opportunity for the implementation of mitigative measures that might otherwise be unpopular. Citizens of the affected area are more likely to accept more mitigative changes when a recent disaster is in fresh memory.

Phases and personal activities

1- Mitigation Personal mitigation is mainly about knowing and avoiding unnecessary risks. This includes an assessment of possible risks to personal/family health and to personal property. One example of mitigation would be to avoid buying property that is exposed to hazards, e.g. in a flood plain, in areas of subsidence or landslides. Homeowners may not be aware of a property being exposed to a hazard until it strikes. However, specialists can be hired to conduct risk identification and assessment surveys. Purchase of insurance covering the most prominent identified risks is a common measure. Personal structural mitigation in earthquake prone areas includes installation of an Earthquake Valve to instantly shut off the natural gas supply to a property, seismic retrofits of property and the securing of items inside a building to enhance household seismic safety. The latter may include the mounting of furniture, refrigerators, water heaters and breakables to the walls, and the addition of cabinet latches. In flood prone areas houses can be built on poles, as in much of southern Asia. In areas prone to prolonged electricity black-outs installation of a generator would be an example of an optimal structural mitigation measure. The construction of storm cellars and fallout shelters are further examples of personal mitigative actions. Mitigation involves Structural and Non-structural measures taken to limit the impact of disasters. Structural Mitigation:This involves proper layout of building, particularly to make it resistant to disasters. Non Structural Mitigation:This involves measures taken other than improving the structure of building. 8 2-Preparedness Unlike mitigation activities, which are aimed at preventing a disaster from occurring, personal preparedness focuses on preparing equipment and procedures for use when a

disaster occurs, i.e. planning. Preparedness measures can take many forms including the construction of shelters, installation of warning devices, creation of back-up life-line services (e.g. power, water, sewage), and rehearsing evacuation plans. Two simple measures can help prepare the individual for sitting out the event or evacuating, as necessary. For evacuation, a disaster supplies kit may be prepared and for sheltering purposes a stockpile of supplies may be created. The preparation of a survival kit, commonly referred to as a "72-hour kit", is often advocated by authorities. These kits may include food, medicine, flashlights, candles and money. 3-Response The response phase of an emergency may commence with search and rescue but in all cases the focus will quickly turn to fulfilling the basic humanitarian needs of the affected population. This assistance may be provided by national or international agencies and organisations. Effective coordination of disaster assistance is often crucial, particularly when many organisations respond and local emergency management agency (LEMA) capacity has been exceeded by the demand or diminished by the disaster itself. On a personal level the response can take the shape either of a home confinement or an evacuation. In a home confinement a family would be prepared to fend for themselves in their home for many days without any form of outside support. In an evacuation, a family leaves the area by automobile (or other mode of transportation) taking with them the maximum amount of supplies they can carry, possibly including a tent for shelter. If mechanical transportation is not available, evacuation on foot would ideally include carrying at least three days of supplies and rain-tight bedding, a tarpaulin and a bedroll of blankets being the minimum. 4-Recovery The recovery phase starts after the immediate threat to human life has subsided. During reconstruction it is recommended to consider the location or construction material of the property. The most extreme home confinement scenarios include war, famine and severe epidemics and may last a year or more. Then recovery will take place inside the home. Planners for these events usually buy bulk foods and appropriate storage and preparation equipment, and eat the food as part of normal life. A simple balanced diet can be constructed from vitamin pills, whole-meal wheat, beans, dried milk, corn, and cooking oil. One should add vegetables, fruits, spices and meats, both prepared and fresh-gardened, when possible.

CULTURE OF PREPAREDNESS FOR DISASTER MANAGEMENT IN INDIA --- AN INITIATIVE BY NATIONAL DISASTER MANAGEMENT AUTHORITY
By Brig (Dr) BK Khanna, Senior Specialist, National Disaster Management Authority Government of India Introduction Disasters are not new to mankind. However, in recent times, owing to their

increased frequency as well as the intensity, disaster management (DM) has attracted immense public interest at the national and international level. More than half the disasters in the world occur in Asia, making this region the worlds most vulnerable area. Indian continent account for 24% of all disasters in Asia. 58.6% of India is prone to Earthquakes and 12% to river floods, affecting more than 1 million people every year. 7200 km out of 7516 km of Indian coastline is prone to cyclones and tsunami and 3% of landmass is vulnerable to landslides. Snow avalanches are frequent and drought occur almost every alternate year. More than 80,000 people get killed in road accidents alone and India stands at number two position, after Iraq, in number of people who died due to terrorist related activities during 2008. There is no known disaster, natural or manmade, which is not taking place in India. Some of the reasons for increase in the frequency of natural disasters are population explosion, rapid and uncontrolled urbanization leading to mushrooming of not so well planned growth of cities, unplanned land use and global warming. Rapid industrialization and the menace of terrorism have also added new dimensions to man-made disasters. The poor
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and marginalized sections of the society are the worst hit. Among those affected, pregnant and lactating women, children below 5 years, aged, sick and differently abled groups suffer the most. Global Trends Keeping in view the death and destruction wrought by devastating disasters, the decade of 1990s was observed, by the United Nations, as the International Decade for Natural Disaster Reduction. A number of initiatives were taken globally, prominent among them being the Kyoto Protocol, under which the United Nations Framework Convention on Climate Change has been ratified by 175 countries. Under this protocol, industrialized countries were to reduce the collective emissions of green-house gases by 52% compared to the base year 1990. The new millennium began with the launch of International Strategy for Disaster Reduction to build up disaster resilience in vulnerable areas. The Hyogo Framework for Action (20052015) was adopted by 168 Governments at the World Conference on Disaster Reduction at Kobe, Japan in Jan 2005. India is one of the signatories to these declarations. Transition in India Government of India, in recognition of the importance of disaster management as a national priority, after the horrific experience of Latur earthquake in 1993 and the Orissa Super Cyclone in October 1999, had set up a High Powered Committee (HPC) in August 1999 and a National

Committee on Disaster Management (DM) after the Bhuj Earthquake for making recommendations on the preparation of DM Plans and for expediting laying down the framework for disaster mitigation & management in India
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Even while the recommendations of the HPC report were being analyzed by the Government, as an interim measure, the management of disasters was shifted from the Ministry of Agriculture to the Ministry of Home Affairs, pending finalization of an arrangement at the National level.. Indian Ocean Tsunami acted as the catalyst and the Government of India (GoI) took a defining step in the legislative history of the country by enacting DM Act 2005. Disaster Management (DM) Act 2005 The DM Act (2005) formalized the institutional framework for DM in India, at national, state, district and at the local levels. National Disaster Management Authority (NDMA) was constituted as the single window, apex body for DM, at the Centre, under the chairmanship of the Prime Minister. Similar arrangements came up at the State level under the Chief Minister. This enabling system was taken down to grass root level by having District Disaster Management Authority(DDMA) headed by the District Collector. The most notable feature is that the co-chairman of the DDMA is the elected representative of the Zila Parishad. This brings in the much required public interface at the cutting edge level. The fact that these authorities are headed by the Heads of the Government themselves indicate the national resolve to tackle this problem. The Act envisages a paradigm shift, from the erstwhile response-centric syndrome to a pro-active, holistic and integrated management of disasters with emphasis on prevention, preparedness and mitigation. These efforts are aimed at conserving developmental gains and also minimizing losses to lives, livelihood and property. The Act also created 10,000 strong eight battalions of the National Disaster Response Force (NDRF) as a specialized response and the National Institute of
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Disaster Management (NIDM) for institutional capacity development. The NIDM works within the broad guidelines of the NDMA which ensures complete synergy at the national level. The entire DM arrangement is backed by institutional, financial and legal mechanism. These institutions are not parallel structures but complimentary and will work in harmony with existing organizations which ensures complete synergy at the national level. National Vision The national vision is to build a safer and disaster resilient India by developing a holistic, proactive, multi-disaster and technology driven

strategy for DM. This will be achieved through a culture of prevention, mitigation and preparedness, to generate a prompt and efficient response at the time of disasters. The entire process will centre-stage the community and will be provided momentum and sustenance through the collective efforts of all government agencies and Non-Governmental Organizations (NGOs). National Disaster Management Strategy While formulating national DM strategy, NDMA took into consideration the contemporary imperatives, the lessons learnt from the past, the commendable work in management of disasters by the Armed Forces, the motivated and selfless role of the NGOs and volunteer organizations, the innate resilience of the communities to live with disasters, the significant role of the corporate sector in providing relief, the capacity of academic & scientific institutions in providing innovative & futuristic inputs and above all to take off from the good work already done in this field. The national strategy for DM is based on six pillars of prevention, mitigation,
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preparedness and capacity development, awareness generation, rapid operationalization of NDRF and further strengthening of the NIDM. It was also decided to centre stage the community which bear the brunt of disasters as immediate responders. Necessity of making them aware of the various types of disasters they are vulnerable to, the elementary preparedness measures & training they must undertake, to provide themselves immediate succor and to save their own and their families lives before specialized response is activated, are the cornerstone of national DM strategy. Culture of Preparedness An Initiative by NDMA NDMA is mandated by DM Act 2005, to lay down national policy and plan on DM and issue guidelines for various types of natural & manmade disasters. One of the tasks also envisages monitoring and coordinating the implementation of the policies & plans. It is in this regard, an initiative has been taken by NDMA to conduct table top and mock exercises on various types of disasters, initially in the most vulnerable areas of the country. The aim of the initiative is to inculcate a culture of preparedness and secure effective participation of the community and other stakeholders. Some of the objectives for conduct of the mock exercises are, to highlight the roles and responsibilities and enhance the coordination among the stake-holders, identify gaps in the resources, communications & systems, identify areas for public-private partnership and empower the community to face disasters squarely. Mock exercises on natural and manmade disasters (except chemical industrial disasters) are conducted at district/s level. The chemical (industrial) disaster mock exercises are organized in most accident

hazardous industries.
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Four Step Mock Exercises The mock exercises are conducted in four steps. In Step one, during Orientation-cum-coordination conference, sensitization of the participants takes place. Need for conduct of the mock exercises, the aim, objectives and scope of the particular exercise, the exercise organizing committee, the participants, the nodal officers, detailment of independent observers and media coverage are delineated during this step. In Table Top exercise, initially the key stake-holders, like the Collector, Superintendent of Police, District Medical Officer, District Fire Officer and the Managing Directors of the short listed industries (in case of chemical industrial disasters) are requested to present their emergency response plans. In certain cases, State Disaster Management Secretary, Director General (DG) Fire & Emergency Services, State DG Police and DG Health Services also present their respective State DM plans. The worst case scenarios are thereafter painted in a bottom-up approach, from preparedness to rescue & relief and through injects, the responses of the concerned stake-holders are elicited. The roles and responsibilities of each stake-holder, in mitigating the disasters get clarified. The control & coordination of the disaster is managed through the concept of incident command system. Independent observers are detailed for each stake-holder department/organization, to report on the gaps and deficiencies. Observers are given a detailed format to report on. Safety officer is also nominated for avoiding mishaps/accidents during actual conduct of the mock exercise. In step three, the Observers are briefed on their roles. They are asked not to interfere in the functioning of the organization being observed. Thereafter, the mock exercise is conducted by mobilizing resources, according to developing situations, to derive certain
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lessons. Additional resources from the State/Centre are released as per the demand and availability. During conduct of mock exercises on chemical disasters, both on site and off site plans are activated. Incident Command Post is established at district level for command and management of the disaster. Incident Commander and Emergency Support Functionaries (ESF) work in close coordination and synergy. Immediate response by the community for search and rescue is seen and the response time of the first responders get tested. Specialised response is activated. Medical response includes rescue, triaging, evacuation, hospital preparedness and creating surge capacity. The police response includes, cordoning, law & order, traffic control, directing the first responders to their assigned tasks,

conducting the VIP visits and handing over the dead bodies to the relatives, after panchnama. The fire and emergency services activate their resources for fighting fires and for emergency situations. Other ESF play their roles according to the standard operating procedures given in the DM Plan. At the end of the Mock Exercise, detailed debriefing is carried out where the observers and heads of all participating organizations participate and give their observations and share experiences. Step four involves documentation. All the mock exercises are documented by filming them as also recording the lessons learnt for future references and for training purposes. The gaps identified during the mock exercise are evaluated at NDMA and sent to the Chief Minister/Chief Secretary/MDs of the concerned State/industries, for follow up action.
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Participants in Mock Exercises The participants include departments and stake holders dealing with disasters at the State and district/s level , with emphasis on community participation in large numbers. The stake-holdedrs at State level include, Secretary Disaster Management, Secretary Health/DG Health, DG Police/IG (Law & Order), DG Fire & Emergency Services, Bomb Disposal Squad/s, Chief Inspector of Factories & Boilers & Pollution Control Board (for chemical industrial disasters), Armed Forces columns , NDRF teams and Para Military Forces. At district level they comprise of Revenue Deptt led by the Collector, police force headed by SP/SSP, Fire & Emergency Services, led by the District Fire Officer, Medical Services, headed by the District Medical Officer, NGOs, District Supply Officer, Municipal Corporation, District Public Relation Officer, Civil Defence, Home Guards, Red Cross, NCC, NYK,NSS, Resident Welfare Associations and PRIs. In chemical (industrial) disaster, the short-listed industries take part in full strength at operational, supervisory and management levels. In major exercises like in earthquake, cyclones the participation go upto 15,000 to 20,000 and in minor disasters like urban fires and chemical (industrial) disasters the participations ranges between 3,000 to 5,000. Types of Mock Exercises The mock exercises are conducted on natural and manmade disasters. The range includes earthquakes, floods, cyclones, landslides, urban fires, chemical (industrial) , mass casuality management, terrorist attacks, bomb blasts, gas leaks etc.
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Lessons Learnt Some of the major lessons learnt from more than 130 table top and mock

exercises conducted so far, are given in succeeding paragraphs. Positive a) Overwhelming response from the community and first responders, including the district administration and State Governments. b) At some places where mock exercises were conducted, actual natural/man-made disasters took place coincidently thereafter, the response of the community/industry and first responders was comparatively quicker and professional and saved many a lives. c) The roles & responsibilities of the stake-holders became more clearer. They became more confident in carrying out their tasks. d) Command, control, communication & coordination aspects got streamlined through concept of incident command system (indianized). e) The concept of self reliance at individual, family & community level was inculcated. f) The specialized response of NDRF has been appreciated by the community and the district administration/State Govts. They have also helped in training the community & first responders in DM response during normal times. g) Post Mumbai terrorist attacks 26/11, even private and public organizations have been approaching for conduct of mock exercises. Lessons Learnt
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a) The decision makers, viz politicians and senior bureaucrats have to be more sensitized to give due importance to the disaster risk mitigation & management aspects. b) The Fire & Emergency Services in the country are deficient of manpower upto 70% of their authorized strength & the equipment they are holding is vintage. They have to be provided with stateofthe art fire fighting and emergency response equipment. c) Police force is not fully prepared for DM tasks. There is shortage of manpower; they have vintage weapons and their vehicles do not have stretchers for immediate evacuation of casualties. The police communication network at certain places is also outdated and not reliable. d) Risk & vulnerability assessment of the district/industry against disasters have not been carried out professionally. e) First aid training has not been given to the community. f) Hospital preparedness is mostly inadequate and creation of surge

capacity is not known to even medical fraternity. There is also shortage of ambulances. Most ambulances are used as load carriers and are not equipped with life saving emergency equipment. g) NGOs are not skilled in particular DM tasks. They can carry out mostly general tasks, like relief distribution, etc. h) Corporate sector is not as yet geared for corporate social responsibility (CSR)during mitigation phase and have so far been providing relief only after a disaster. They need to be sensitized for CSR during mitigation and preparedness phases of disaster.
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i) While as MAH units carry out on site drills every six months regularly, the off site mock exercises are mostly eye wash as the district administration rarely takes part in such drills. The industrial units also have not got the risk & vulnerability of their establishments done professionally. Many a MAH units do not have wind-socks prominently displayed. The availability of personal protective equipment with the first responders is much below the required minimum. j) The early warning and alarm systems are required to be upgraded for timely responses by the first responders and the community. k) DM plans of the districts and industries need to be reviewed and updated. l) The community is the first responder but it is not interested in training itself. They need to be prepared and trained. m) Traditional practices are not given the due they deserve. Conclusion In conclusion, this initiative of the NDMA has elicited overwhelming and positive response from the States/Districts/MAH industries. The community has also started feeling involved. Post Mumbai attacks 26/11, there has been tremendous demand even from the private entrepreneurs for assisting them in preparedness and mitigation measures. India may, perhaps be the only country in the world, to have taken the initiative , to conduct so many mock exercises at national level, on so varied a disasters from earthquake to terrorist related
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disasters, with utmost commitment, sincerity and social responsibility. Hopefully, in the next two to three years time, we may claim to be among the most prepared countries for managing all types of disasters.

Disaster Management - Inculcating a culture of Preparedness

A CCTV network across Mumbai with a coordinated crisis management cell during emergency, colour coded alerts and a media/communication strategy, are just some of the suggestions that have come forth post 26/11, the Mumbai siege. Notwithstanding the excellent work done by our security forces, many lives could have been saved by the availability of proper equipment, communications network and a well-coordinated response. Earlier, the super cyclone in Orissa in October 1999 and the Bhuj earthquake in Gujarat in January 2001 had already underscored the need to adopt a multi-dimensional endeavour involving diverse scientific, engineering, financial and social processes; the need to adopt multi-disciplinary and multi-sectoral approach and incorporation of risk reduction in the developmental plans and strategies. But as we grappled with the Kosi flooding in 2008, questions were again being asked about the level of understanding required to tackle disasters, natural or manmade, in India. And Mumbai raised a barrage of questions! It is plain to see that disasters are also striking with increasing regularity and tenacity. Yet in most places, they are treated more as a disruption than a foreseeable obstacle to progress. Urgently needed is a change in approach. It is not enough to merely think of relief after a disaster strikes. Policy leaders, both national and local, must also anticipate and deal with them ahead of time. For such a shift in approach, there needs to be a change in attitude. We must recognise the huge impact climate change is having on weather patterns, hydro-meteorological phenomena, and the frequency, intensity and unpredictability of natural hazards. Without mitigation, these calamities will leave the nation and its people ever more vulnerable to devastation. Disaster management occupies a specially important place in this countrys policy framework as it is the poor and the underprivileged who are worst affected on account of calamities/disasters. The statistics are alarming (see box Alarming Statistics). Terror attacks only compound the nature of response. Over the past couple of years, the Government of India has admittedly brought about a paradigm shift in the approach to disaster management. The new approach proceeds from the conviction that development cannot be sustainable unless disaster mitigation is built into the development process. Another cornerstone of the approach is that mitigation has to be multi-disciplinary spanning across all sectors of development. The new policy also emanates from the belief that investments in mitigation are much more cost effective than expenditure on relief and rehabilitation. It is important to note that in India, it is the State Governments that are primarily responsible for disaster management including prevention and mitigation, while the Government of India provides assistance where necessary as per the norms laid down from time to time and proposes that this overall framework may continue. However, since response to a disaster requires coordination of resources available across all the Departments of the Government, the policy mandates that the Central Government will, in conjunction with the State Governments, seek to ensure that such a coordination mechanism is laid down through an appropriate chain of command so that mobilisation of resources is facilitated. (See box on Key Features of National Policy on Disaster Management.) Maxine Olson, UN Resident Coordinator & Resident Representative, UNDP, says in the last few years, India has come a very long way in terms of looking at disaster risk management and the work that is possible to do. Establishment of the National Disaster Management Authority as well as the State Disaster Management Authorities, the Institute for Disaster Management are all examples. There is much more to do and one of the things is insurance. Spreading the risk is needed and ways to spread risk should be there so that when disaster happens people can be adequately reimbursed for what has happened to them. It will be far easier to recover after those effects. Community Involvement Whether a disaster is major or minor of national or local proportion, it is the community or village level population that suffers

most due to its adverse impact. They use coping and survival strategies to face and respond to the situation long before outside help from NGOs or the government arrives. The goal of any disaster management initiative is to build a disaster resistant/resilient community equipped with safer living and sustainable livelihoods to serve its own development purposes. The community is also the first responder in any disaster situation, thereby emphasising the need for community level initiatives in managing disasters. Maxine Olsen describes an ideal mock drill exercise being undertaken under the UNDP-DRM Programme in India, one of the largest such in the world. Every one in the communities in India must have the knowledge to be able to respond to the disaster and help each other. This is something that is extremely important. At a disaster risk programmes in one of the villages in Orissa, there was a mock disaster and people grabbed their roles. There were people who were assigned with stretchers, people who knew how to do CPR, people who knew how to get people out of the water, people who are responsible for finding old people, people who would not be able to get out of their houses quickly in the event of an earthquake. They were well organised and nothing can substitute for it. The importance of that is well appreciated but work needs to go and the worst part of disasters is that they dont happen every day and so people forget, people dont prepare, people dont practice, so it is the responsibility of the professionals to be sure that indeed those things do happen so that people know exactly what to do when the time comes. (See Box: UNDP-DRM Programme.) Another example of disaster-preparedness effort comes from Andhra Pradesh, in which groups of 15 families were selected to work towards disaster mitigation. Community solidarity helped build their resilience and ensured that they did not remain merely passive victims. They were taught to swim, to be in constant touch with each other, and to rush to shelters at the first signs of an impending cyclone so as not to be swept away. These may be small interventions, but they play a crucial role in saving lives. Here, local bodies, i.e. the Panchayati Raj Institutions, can be effective instruments in tackling disasters through early warning system, relief distribution, providing shelter to the victims, medical assistance, etc. Uday Kumar Varma, Additional Secretary, Ministry of Information and Broadcasting, points out that research has shown that during earthquakes and volcano ruptures and other related disasters, the one item that people picked up from their homes to escape with is a radio. Community Radio as distinct from public service broadcasting serves to bring small communities together, focuses on common mans day to day concerns and helps in realising local aspirations. It aims to contribute to the lives of the local community by creation of content by the people and for the people of the community. Besides, it plays an active role in the information dissemination amongst the community thereby creating awareness and social responsibility. Capacity building for effective disaster management, therefore, needs to be grounded and linked to the community and local level responders on the one hand and also to the institutional mechanisms of the state and the country on the other. The Development Perspective With the kind of economic losses and developmental setbacks that the country has been suffering year after year, the development process needs to be sensitive towards disaster prevention and mitigation aspects. There is, thus, need to look at disasters from a development perspective as well. As N Vinod Chandra Menon, Member, National Disaster Management Authority (NDMA), pointed out in the session on disaster management, each year natural disasters result in thousands of deaths, injuries, loss of property and infrastructure as well as substantial economic loses. According to the World Bank, 97 per cent of the disaster related deaths occur in developing countries. And India is no exception to this trend. India is spending almost 2 per cent of the GDP every year in terms of post disaster relief, running into hundreds of crores. During 2005 to 2010, the 12th Finance Commission has recommended that funds to the tune of Rs 213.33 billion be set aside for post disaster relief is. You can see that it is actually becoming a colossal drain on the consolidation of all the

accumulated critical infrastructure and public assets and amenities which we are creating, suddenly it all gets wiped out as we saw in Gujarat earthquake, he said. The extent to which a population is affected by a calamity does not purely lie in the physical components of vulnerability, but is contextual also to the prevailing social and economic conditions and its consequential effect on human activities within a given society. Research in areas affected by earthquakes indicates that single parent families, women, handicapped people, children and the aged are particularly vulnerable social groups. The geophysical setting with unplanned and inadequate developmental activity is a cause for increased losses during disasters. In the case of India, the contribution of overpopulation to high population density, which in turn results in escalating losses, deserves to be noted. This factor sometimes tends to be as important as physical vulnerability attributed to geography and infrastructure alone. Another challenge that India will be facing as the years go by is urbanisation. This is particularly so in earthquake-prone areas. As the population becomes more of an urban population, the risks for disaster become greater particularly in the case of an earthquake. As buildings get bigger they get heavier. Indeed it needs to be built in such a way that they are earthquake resistant and so it is extremely difficult to do retrofitting. There is quite a bit of work that goes on in terms of trying to raise the awareness of how indeed you can retrofit buildings and be earthquake resistant and that is an extremely important work. The best, of course, is to build them well in the beginning. In the last few years we had tragic examples in the Kashmir earthquake of what happens when schools are not built well. So the importance lies in being able to build and to get technologies that are earthquake resistant. Traditional methods of construction are better and more resistant than concrete slab and so the importance of using traditional techniques in such a way that they are actually protecting people is also something that is there. Key action areas must encompass the following:

y y y y

Develop a better understanding of the depth and extent of disaster hazards and vulnerability. Use the best available data and risk analysis as a basis for policy decisions. Incorporate disaster risk in regulatory procedures, keeping in mind factors that increase vulnerability, such as dense urban growth in earthquake-prone areas. Include disaster risk assessment as an integral part of development planning -- particularly in post-disaster reconstruction efforts. For instance, flood conditions emerge due to the inadequate capacity of the rivers to contain the high flow brought down from the upper catchments due to heavy rainfall. Accumulation of water resulting from heavy spells of rains over areas with poor drainage system can also cause flooding. The heavy precipitation comes with the problems of sediment deposition, drainage, congestion and synchronisation of river floods with sea tides in the coastal areas. Various measures are being taken by the concerned government officials at all levels to prevent heavy loss of life and property during the crisis. To minimise flood damage the basic approach is to prevent floodwaters from reaching the damage vulnerable centres. The Flood Forecasting Network of CWC sends information to all the major flood prone inter-State river basins in the country. Information from satellites is used for mapping and monitoring flood prone areas. The Central Water Commission (CWC) under the Ministry of Water Resources issues flood forecasts and warnings. A flood alert is issued well in advance of the actual arrival of floods to enable people to take appropriate measures and shift to safer places. But, the pictures of Kosi tell us a different story. Apart from an effective disaster response system, it is important to have a good flood prevention and mitigation system to achieve objectives of vulnerability reduction. State governments have come forward to take up mitigation programmes like construction of raised platforms, embankments, flood walls, sea walls along the various flood prone rivers, etc. Despite this, floods continue to be a menace primarily because of the huge quantum of silt, which has raised the bed level in many rivers.

Key Features of National Policy on Disaster Management

y y y y y
A holistic and pro-active approach for prevention, mitigation and preparedness will be adopted for disaster management. Each Ministry/Department of the Central/State Government will set apart an appropriate quantum of funds under the Plan for specific schemes/projects addressing vulnerability reduction and preparedness. Where there is a shelf of projects, projects addressing mitigation will be given priority. Mitigation measures shall be built into the ongoing schemes/programmes Each project in a hazard prone area will have mitigation as an essential term of reference. The project report will include a statement as to how the project addresses vulnerability reduction. Community involvement and awareness generation, particularly that of the vulnerable segments of population and women has been emphasised as necessary for sustainable disaster risk reduction. This is a critical component of the policy since communities are the first responders to disasters and, therefore, unless they are empowered and made capable of managing disasters,any amount of external support cannot lead to optimal results. There will be close interaction with the corporate sector, NGOs and the media in the national efforts for disaster prevention/vulnerability reduction. Institutional structures/appropriate chain of command will be built and appropriate training given to disaster managers at various levels to ensure coordinated and quick response at all levels;and development of inter-State arrangements for sharing of resources during emergencies. A culture of planning and preparedness is to be inculcated at all levels for capacity building measures. Standard operating procedures and disaster management plans at state and district levels as well as by relevant central government departments for handling specific disasters will be laid down. Construction designs must correspond to the requirements as laid down in relevant Indian Standards. All lifeline buildings in seismic zones III, IV & V hospitals, railway stations, airports/airport control towers, fire station buildings, bus stands major administrative centres will need to be evaluated and, if necessary, retro-fitted. The existing relief codes in the States will be revised to develop them into disaster management codes/manuals for institutionalising the planning process with particular attention to mitigation and preparedness.

y y

y y y y y

Technology an Enabler The entire disaster mitigation gameplan must necessarily be anchored to frontline research and development in a holistic mode. State-of-the art technologies available worldwide need to be made available in India for upgradation of the disaster management system; at the same time, dedicated research activities should be encouraged, in all frontier areas related to disasters like biological, space applications, information technology, nuclear radiation etc., for a continuous flow of high quality basic information for sound disaster management planning. According to Robin Davis, Head International Development, SunGard Public Sector, emergency management activities can be are grouped into three phases. These are related by time and function to all types of emergencies and disasters. These phases are also related to each other and each involves different types of skills. In the pre-event phase, contingency plans are created and strategy for responding is made... we have to have a strategy for responding, know what we have available and simulate and rehearse where possible. For the response phase, we want to manage the event, lock the activities, know who is where, make informed decisions, whilst continually monitoring what is going on. Contingency and fallback plans can be activated as needed. Sensors in the field such as water height, wind, chemical, earthquake monitoring equipment are placed which can detect what is going on and of course CCTV cameras can display the live pictures. For the evaluation phase after the event, we want to collate event all of the debrief reports are collected. We want to understand and learn what happened and why so that hopefully we can avoid it next time. All of these phases depend on data from a variety of sources. The appropriate data has to be gathered, organised, and displayed logically to determine the size and scope of emergency

management programmes. During an actual emergency, it is critical to have the right data at the right time displayed logically to respond and take appropriate action. Technology is an enabler to ensuring more efficient use of these resources providing faster responses and through interoperability of all parties attending the incident. Up-to-date knowledge is the key to saving lives when these incidents happen. With all of these emergency services in one place, the need for a reliable communications and efficient capability to integrate communications in the control room is required. Resources, action plans, and contingencies can all be preloaded so that when a disaster occurs right people can be in the right place at the right time and the control room and the commanders can be constantly updated and informed decisions can be made quickly on what to do next, says Robin Davis. Today, Indias tsunami early warning system is one of the most outstanding examples of the commitment and dedication of the scientific community to the cause. It also represents how technology can be used to enable the disaster management both in terms of preparedness and in terms of response. Shailesh Nayak, Secretary, Ministry of Earth Sciences, the architect of the Tsunami Early Warning System and former Director of INCOIS, the Indian National Centre for Ocean Information Systems in Hyderabad, says Information sharing always calls for inter-operable and dependable emergency communication system and the lack of this type of a coherent emergency communication system is a critical security and emergency response problem. Here the inter-operability refers to the ability of emergency response officials to share information via voice and data signals on demand. Prevention, Preparation and Planning In this changed situation, we need to go beyond emergency relief and recovery to emphasise mitigation and adaptation too. But what can be done concretely? Three areas deserve attention prevention, preparation and planning. Prevention also involves decisions on human settlements and on building standards. Experience in the US or India tell us that stronger flood protection systems are a critical necessity, including monitoring of levees, their repair and maintenance. At times, the problem is less of a natural calamity than poor management, inadequate maintenance and inaction leading to situations of disasters waiting to happen. Preparation importantly includes investment in early warning systems, including across neighbouring nations. In Bangladesh in the early 1970s, a cyclone killed more than 300,000 people. But after the country put in an extensive early warning system, a recent cyclone of similar intensity took 3,000, not 300,000, lives. Preparation also involves risk transfer mechanisms, including insurance schemes, woefully lacking in many countries. Planning disaster management is the other area of action. Stronger coordination is needed across different levels of government, and with non-government actors and communities. Government units need management capacity, financial resources and information. Calamity funds are almost always inadequate to address a disaster, especially its prevention phase. Essential is institutional accountability for disaster management, from ensuring certified standards and maintenance to the provision of disaster relief and reconstruction. Not only do local and central governments need to work hand in hand, but neighbouring nations, such as those in South Asia, need to be on the same page on common solutions, for example, in establishing strategically identified and well-managed infrastructure. In essence, countries have often viewed efforts to mitigate natural disasters as a digression of resources from the priority for economic growth. But the new reality indicates quite the opposite. Unless preventive and precautionary measures are taken to reduce the risk of terror attacks or natural disasters, sustained growth will not be possible.

There is clear need to integrate disaster risk reduction into sustainable development policies and planning, as well as strengthen institutions that help communities build greater resilience to disasters. As Maxine Olsen said, India has moved from the culture of response to one which is about preparedness manag-ement and surely that is going to be something that will stand India in very good stead in the years ahead. What is required is a common mission critical communications network, says Nayak. The States are being persuaded to set up control rooms/emergency operations centres at the state and district level. Assistance for construction and purchase of equipment for control rooms is being provided by the Centre. The control rooms, which will function round the clock, will be composite control rooms to look after law and order issues as well as disaster management. Equipment are also being provided for these control rooms under the disaster risk management programme. Many states have already moved forward on this front. (See box on States Taking Action). The state governments have set up state crisis management groups headed by chief secretaries, institutes of relief commissioners and state/district contingency plans. There is a Calamity Relief Fund (CRF) for each state. 75 per cent of the CRF is contributed by the central government and the rest contributed by the various state governments. But we need basic communication equipment for early community warning; mobile emergency health units and decentralised mobile power suppliers for sudden disasters, apart from other issues. Information and training on ways to better respond to and mitigate disasters to the responders go a long way in building the capacity and resilience of the country to reduce and prevent disasters. Training is an integral part of capacity building as trained personnel respond much better to different disasters and appreciate the need for preventive measures. Hannu Rantanen, Head Instructor, Emergency Services College, Finland, feels the ability to promote networking and coordinating is essential for the success of emergency response. Also at the time of receiving the early warning, the role of a common emergency response centre is often important in making risk assessments and deciding the proper response. Mumbai, unlike any western city of similar scale, had no specially-trained emergency response team or a crisis-management centre with an established drill to deal with a terrorist assault. In this, it was not exceptional: no Indian city has any crisis management protocol in place.

It is crucial that in the event of some form of disaster, whether it be a terrorist attack, earthquake, flood or a major fire, that all of the emergency services can work in tandem with each other. To make this possible there are frequent disaster management role plays, for example there can be a mock terrorist attack with numerous injuries and fatalities. The inevitable call to the emergency services will be made and then all of the pre-disaster planning will come into play. The emergency response is not only in actions but information management as well. Todays emergency responders need and deserve communications tools and access to information so they can provide first class all hazard management and response. This is not a technology issue. It is not just purchasing the right technology, it is building up a new approach and looking at the needs of the organisations. So the essential component needed to enable such flexible communications is defining the actual user needs as well as policies and protocols to determine the rules for using the capabilities of the system. As Hannu Rantanen puts it, you can always purchase the radio system but you have to make it into a communication system.

17. Disaster Management 887

Chapter 17 DISASTER MANAGEMENT The word Disaster is from a French word Desastre meaning bad or evil star. However this is a very narrow conception of disaster and in our context, any disaster means a situation in which there is a sudden disruption of normalcy within society causing widespread damage to life and property. Typology of disaster- A disaster can be either natural [rain, flood, cyclone, storm, land slides, earthquake, volcanoes] or man made [war including biological, arson, sabotage, riots, accident (train, air, ship), industrial accidents, fires (forest fires), bomb explosions, nuclear explosions and ecological disasters]. The discussion here is confined to the natural disasters. Pre-Independence, droughts and famines were the biggest killers in India. The situation has changed due to a combination of factors like irrigation development, food security measures. Floods, cyclones, droughts, landslides, avalanches and earthquakes are some of the major natural disasters that repeatedly and increasingly affect the country. Vulnerability- Vulnerability is defined as the extent to which a community, structure, service, or geographic area is likely to be damaged or disrupted by the impact of particular hazard, on account of their nature, construction and proximity to hazardous terrain or a disaster prone area. In 1989, the General Assembly of the United Nations proclaimed the decade 1999-2000 as the International Decade for Natural Disaster Reduction (IDNDR). At the World Conference on Natural Disaster Reduction in the city of Yokohama, Japan in 1994, deep concern was expressed at the continuing human suffering and disruption of development due to natural disasters and a Yokohama Strategy and Plan of Action for a Safe World was developed. This was a definitive step in Disaster Mitigation and Preparedness Planning. It is not possible to do away with the devastation due to natural hazards completely. However, destruction from natural hazards can be minimized by the presence of well-functioning warning systems, combined with preparedness on the part of the vulnerable community. Disaster management may be seen as a part of good governance. Basic concepts of Emergency Management- The basic concept suggests that the same management strategies can be applied to all emergencies. Emergencies do not just appear one day, rather they exist throughout time and have a life-cycle of occurrence, and hence the management strategy should match the phases of an emergency in order to mitigate, prepare, respond and recover from its effect. There are four phases in Emergency Management: Mitigation, Preparedness, Response and Recovery. The four phases are visualized as having a circular relationship to each other (Emergency Management Cycle). The activities in one phase may overlap those in the previous one.
888 17. Disaster Management Pre-Emergency Redevelopment

Preparedness Prevention Emergency Mitigation Redevelopment Post-Emergency

Emergency Management Cycle

Mitigation refers to activities which actually eliminate or reduce the vulnerability or chance of occurrence or the effects of a disaster. Mitigation phase begins with conducting hazard identification and vulnerability analysis which are essential to the planning of all other phases. Hazard identification and vulnerability analysis is a two step process. First the hazard is identified which has the potential of affecting the population. Secondly, how people, property and structures will be affected by the disastrous event. Preparedness is a state of being ready to react promptly and effectively in the event of an emergency. Being prepared means that a plan of action exists for an emergency so that it is clear as to what to do before the emergency occurs. Preparedness measures to be undertaken depends upon the analysis of hazard severity and vulnerability, which is also the basis for deciding mitigation strategy. In some cases, such as a flood or hurricane, an early warning gives several hours to act. However, often no prior warning of an impending emergency, such as with earthquakes, tornadoes, explosions, or major fires is possible. Preparedness for any emergency, especially those, which strike without notice, requires a plan. It is essential to identify the resources available, and ways to utilize them. It must also be reasonably certain that the plan will work in an emergency situation. Preparedness Plan - The purpose of a plan is to provide a systematic way of responding to an emergency situation. The following aspects should be taken into consideration in the development of Emergency Preparedness Plan.
17. Disaster Management 889

_Identification of possible emergency situations which may occur in an area _Deployment of officer in charge in case of emergency Developing a strategy for activities likely to be undertaken and resources which could be of use _Identifying government bodies responsible to respond in case of emergency _Establishment of Emergency Operation Center (EOC) or Control Room to carry on emergency operations Response activities occur during and immediately following a disaster. They are designed to provide emergency assistance to victims of the event and reduce the likelihood of secondary damage. The five basic stages of response to an emergency or disaster are (i) Notification/ Warning, (ii) Immediate Public Safety, (iii) Property Security, (iv) Public Welfare, and (v) Restoration. The length of each stage depends upon the emergency situation. Notification/ Warning- is the first stage of response. Warning should be issued to two specific groups:

(a) The general public; and (b) Departments, individuals, or agencies who must respond to the emergency. In most emergency situations, the general public can be informed through radio and television; however, those in the immediate danger area should be informed by more direct means using public address systems. Those departments, individuals or agencies, which must be alerted should be informed according to the emergency preparedness plan. The alert could be done by two-way radio, telephone, messenger or local television and radio bulletins. The people who are expected to respond must be given enough information so that they know what to do. Practically no warning can be given for an earthquake as there exists no scientific method to predict its occurrence. However, some of the conventional ways of earthquake prediction have been practised since ancient times, the most relevant being the erratic behavior of animals just before an earthquake and it can be considered as an indicator of earthquake. Immediate Public Safety deals primarily with providing emergency medical services, search & rescue and evacuation from the disaster area. The primary concern is for safety of the people and treatment of those who are injured. Property Security - This stage deals primarily with the protection of property in the community. Primarily local police carry out the actions in this stage. The police should see that property is safe and looting or vandalism does not occur. The fire department aids in prevention of further damage to surrounding property. The Public Works/ Highways Department/ local urban or rural bodies may also play an important part by providing manpower, removing debris or providing street barricades.
890 17. Disaster Management

Public Welfare consists of two main operations- caring for the people after the emergency and assessing damage. This stage is where it is most important that all the service agencies work closely. During the public welfare stage the prime concern is about mass care for injured, shelter for the homeless, food and clothing for those in need. During this stage assessment of the damage is necessary in order to obtain State or National support. Restoration involves actions that repair the necessities of life, which means restoring utility service and the removal of debris from the disaster scene. Recovery is the final phase of the emergency management cycle. Recovery continues until all systems return to normal, or near normal. Shortterm recovery returns vital life support systems to minimum operating standards. It grows out of the response effort. During the response phase, emergency repairs to buildings are made as protective measures against further damage or injury. Short-term recovery is the restoration of vital services and facilities to minimum standards of operation and safety. Severely damaged buildings are scheduled to be replaced or removed, water and sewer repairs are made, electricity and telephone services returned to normal.

Long-term recovery may continue for a number of years, as the community slowly returns to pre-emergency or better conditions. Long-term recovery may include the complete redevelopment of damaged areas. During short-term recovery, buildings are repaired and peoples immediate needs are taken care of and assistance programmes are put into effect. There is no clear-cut distinction when long-term recovery begins. They are not two distinctly different phases of recovery. Long-term recovery is simply those recovery efforts, which are still in operation long after the disaster and includes everything from complete redevelopment of the disaster area to mitigation efforts to prevent a similar disaster on an on-going basis for years after the emergency. The recovery phase of emergency management is just as vital as the mitigation, preparedness, and response phases. A key element in the recovery phase is to develop and implement ways to reduce community's vulnerability to a repeat of a similar emergency and also continued liaison with the State Headquarters and the Central Government for assistance. Redevelopment as mitigation - After a major disaster, certain areas may be completely levelled and new buildings must be designed to take their place. Redevelopment refers to the complete replacement of structures, and not just structure repair. Redevelopment provides the opportunity to reduce the chances that similar structural damage will occur again. The redevelopment officials (public and private) must think of ways to rebuild the damaged structures so that the next time the same hazard strikes, the impact is greatly reduced. Engineers should evaluate if the building codes respond to particular hazard. Planners should evaluate whether the damaged area should be rezoned for lower density uses. Residents of a disaster-affected area should be asked for their preference for resettlement in the same area or other.
17. Disaster Management 891

The loss of human life and property from a disaster can be substantially reduced by timely issue of warning to the community likely to be affected from the disaster. Similarly, providing a quick response immediately after the disaster can substantially reduce the suffering of the affected people. Organizational structure and Institutional arrangements for emergency management in the State State Emergency Management Planning Committee (SEMPC)- A State Emergency Management Plan must be prepared for each kind of disaster and the details of the organizational structure for emergency management activities should be made known. Responsibility of concerned agencies for the execution of rescue, relief and recovery operations and Standard Operating Procedure for each should be made available. A State Emergency Management Planning Committee (SEMPC) should be constituted with all the stakeholders as members. State Crisis Group (SCG)- The setting up of a State Crisis Group (SCG) will enable quick decision making, operational direction and coordination of the issue of warning and execution of rescue, relief and recovery operations. The responsibilities of the SCG would include:

On spot decision making Control and coordination of response and recovery activities Resource mobilization and replenishment Monitoring of overall response & recovery activities. Preparation of reports for submission to State Government through Relief Commissioner State Emergency Manager (SEM)- Different government agencies and the NGOs are supposed to operate within the overall direction and coordination of the Commissioner of Revenue Administration/ Relief Commissioner, who may be designated as the State Emergency Manager (SEM). The individual government agencies and the NGOs will perform the assigned jobs but the State Emergency Manager will appropriately augment their resources by drawing upon resources from other government agencies and the local communities. The Chief Secretary or Commissioner of Revenue Administration can also assign additional responsibilities and functions to different Government agencies to meet the requirements of the situation. During the time of emergency the Chief Secretary or the Commissioner of Revenue Administration who is the State Emergency Manager (SEM) would act as the focal point for control and coordination of all activities. His responsibilities would be: _Get in touch with the local Army/ Navy/ Air force units for assistance in rescue, evacuation and relief _Requisition resources, materials and equipment from all Departments / Organizations of the government and also from private sector _Direct industry to activate their onsite and off -site disaster management plan
892 17. Disaster Management

_Set up Site Operations Centre in the affec ted area with desk arrangements _Arrange establishment of transit and/ or relief camps, feeding centres and cattle camps _Send Preliminary Information Report and Action Taken Report to the Government _Arrange immediate evacuation whenever necessary State Emergency Control Room (SECR)- The need for directing the operations at the affected site, the need for coordination at the district headquarters and the need for interaction with the State Government to meet the conflicting demands at the time of disaster is the responsibility of the Relief Commissioner and his team. A well-equipped State Emergency Control Room (SECR) in terms of manpower and equipment should be established to help the Relief Commissioner and his team and to perform the following functions: Collection and compilation of information from the affected area Documenting information flow Decision making regarding resource management Allocation of task to different resource organization Supply of information to State Government

The SECR may have senior representatives in the capacity of Desk Officers from the following key resource agencies: Search, Rescue & Evacuation desk - Police and Fire Services _Logistics & Welfare desk _Medical desk _Infrastructure desk The Desk Officers should maintain constant contact with the State Crisis Group members and the other district heads to ensure quick decisionmaking. Activities of State Emergency Control Room (SECR) (a) Normal times- The responsibilities during the normal times will include: Ensure all warning and communication systems, instruments are in working condition. _Collect information on a routine basis from the State departments on the vulnerability of areas to disasters. _Liaise with SEMPC _Develop status reports of preparedness and mitigation activities in the State.
17. Disaster Management 893

_Ensure appropriate implementation of State Emergency Management Plan _Maintain data bank with regular updating Evaluation & updation of State Emergency Management Plan is the responsibility of SEMPC. However, SEMPC would keep an account of the amendments and accordingly review its response strategy. SECR will be responsible for activating the trigger mechanism in the event of receipt of a warning or occurrence of a disaster. (b) Activities on occurrence of emergency Issue Warning / Alert- On the basis of message received from the forecasting agencies, warning has to be issued for the general public and the departments which play a vital role during emergencies. Issue of correct and timely warning would be one of the prime responsibilities of SECR. For effective dissemination of warning SECR should have a well-planned line of communication. The Relief Commissioner would be the authoritative body to issue warning. Formulation of warning message should consider the target group for which it is issued. (c) Post-emergency activities After an emergency the main responsibility of a SECR would be: _Evaluation of relief and rehabilitation activities in order to assess the nature of state intervention and support, suitability of the organization structure, institutional arrangements, adequacy of Operating Procedures, monitoring mechanisms, information tools, equipment and communication system. _Post -emergency impact studies for long term preventive and mitigation efforts to be taken. Communication Room (Main Message Room)- The police wireless system should continue to be in contact with the SECR. In every district the

police have a well-established wireless communication system; therefore, under any emergency the communication resources available with the police may be utilized. During disaster, SECR would be connected to Site Operations Centre and the facilities at various Desks. Emergency Support Functions (ESFs) are how Emergency Management accomplishes many of the tasks of responding to an emergency. List of Emergency Support Functions ESF No. 1 Communication ESF No. 2 Public Health and Sanitation ESF No. 3 Power ESF No. 4 Transport
894 17. Disaster Management

ESF No. 5 Donation ESF No. 6 Search and Rescue ESF No. 7 Public Works and Engineering ESF No. 8 Food ESF No. 9 Information and Planning ESF No. 10 Relief Supplies ESF No. 11 Drinking water ESF No. 12 Shelter ESF No. 13 Media ESF No. 14 Helplines Planning Process The Planning process for disaster management is based on the principle that response and level of preparedness required are dependent on the extent of vulnerability and the level of capacity to deal with situations. Disasters may be graded at three levels: L1: District Level Disaster within the capabilities of the district administration to deal with L2: State Level Disaster within the capabilities of State Government to deal with L3: National Level Disaster requiring major intervention of the Central Government L0: No disaster situation- This is the level at which surveillance, preparedness and mitigation activities must be focussed on Trigger mechanism Trigger Mechanism is a quick response mechanism, which would spontaneously set the vehicle of management into motion on the road to disaster mitigation process. The trigger mechanism has been envisaged as a preparedness plan whereby the receipt of a single of an impending disaster would simultaneously energise and activate the mechanism for response and mitigation without loss of crucial time. This would entail all the participating managers to know in advance the task assigned to them and the manner of response. Identification of available resources, including manpower, material and equipment and adequate delegation of financial and administrative powers are prerequisites to successful operation of the trigger mechanism.

As and when a disaster takes place, be it natural or man-made, the managers struggle to mitigate its effects on human lives and material losses. The immediate response in all disasters has more or less the same parameters. These are to provide rescue and relief and save the precious human life. Thus, the emergency response of the disaster managers is a factor independent of the types of intensity of the disasters.
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As and when the disasters strike or take place, the managers are required to swing in action without losing time. Generally, in such situations, the managers start organising, planning and activating the mitigation process. On the other hand, the event had already taken place and the need of that hour is to start the mitigation process and virtually no time can be spared at that stage for the activities like organizing and planning. Time is the essence of the immediate relief and rescue operations to save human lives and mitigate human miseries for the next 48 to 72 hours. Thereafter, actually what is required to be done is a part of long term rehabilitation and reconstruction programmes. The trigger mechanism in fact is a preparedness plan in which all the participating managers, and actors know in advance the task assigned to them and the manner in which they have to be prepared themselves to respond. In fact the trigger mechanism is in essence the Standard Operating Procedure (SOP) in which the implementation of the efforts on ground is well laid down. Generally, the activities which include evacuation, search and rescue, temporary shelter, food, drinking water, clothing, health and sanitation, communications, accessibility, and public information which are very important components of disaster management, would follow on the activation of the Trigger Mechanism. All these major activities which are common in all types of disasters will require sub-division and preparation of sub-action plans by each specified authority. They will be required to list all requirements and their availability within the prescribed response time. Separate SOPs need to be in place for each front line agency like Police, FireService, PWD, Highways, Health Departments. The Trigger Mechanism requires the disaster managers to: Evolve an effective signal / warning mechanism. Identify activities and their levels. Identify sub-activities under each activity / level of activity. Specify authorities for each level of activity and sub-activity. Determine the response time for each activity. Work out individual plans of each specified authority to achieve the activation as per the response time. Have Quick Response Teams for each specified authority. Have alternative plans and contingency measures. Provide appropriate administrative and financial delegations to make the response mechanism functionally viable. Undergo preparedness drills. Paradigm Shift towards Prevention and Reduction- Recognizing the

rapidly rising world-wide toll of human and economic losses due to natural disasters, the UN General Assembly in 1989 took a decision to launch a far reaching global undertaking during the nineties to save human lives and
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reduce the impact of natural disasters. With this aim in mind, the decade 1990-2000 was declared as the International Decade for Natural Disaster Reduction (IDNDR). The objective of the IDNDR was to reduce, through concerted international action, especially in developing countries, the loss of life, property damage and social and economic disruption caused by natural disasters such as earthquakes, floods, cyclones, landslides, locust infestations, drought and desertification and other calamities of natural origin. By the year 2000, as per the plan of the IDNDR, all countries should have had: a. Comprehensive national assessments of risks from natural hazards, with these assessments taking into account their impact on developmental plans, b. Mitigation plans at national and/ or local levels, involving long term prevention and preparedness and community awareness, and c. Ready access to global, regional, national and local warning systems and widespread dissemination of such warnings. Prevention, Mitigation and Preparedness Strategy Development of a culture of prevention as an essential component of an integrated approach to disaster reduction. Prepare and maintain in a state of readiness Preparedness and Response Plans at National, State and District levels. Adoption of a policy of self reliance in each vulnerable area. Education and training in disaster prevention, mitigation and preparedness for enhancement of capabilities at all levels. Identification and strengthening of existing centres of excellence in order to improve disaster prevention, reduction and mitigation capabilities. Ushering in a New Culture of Disaster Management Culture of Preparednes- Hitherto, the approach towards coping with the effects of natural disasters has been post-disaster management involving many problems such as law and order, evacuation and warnings, communications, search and rescue, fire-fighting, medical and psychiatric assistance, provision of relief and sheltering, etc. After the initial trauma of the occurrence of the natural disaster is over within the first few days or weeks, the phase of reconstruction and economic, social and psychological rehabilitation is taken up by the people themselves and by the government authorities. Soon thereafter the occurrence of the disaster is relegated to historic memory till the next one occurs either in the same area or in some other part of the country. It is not possible to do away with the devastation of natural hazards completely. However, experience has shown that destruction from natural

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hazards can be minimized by the presence of a well-functioning warning system, combined with preparedness on the part of the vulnerable community. Warning systems and preparedness measures reduce and modify the scale of disasters. A community that is prepared to face disasters, receives and understands warnings of impending hazards and has taken precautionary and mitigatory measures, will be able to cope better and resume their normal life sooner. Culture of Prevention- One of the many lessons learnt by victims of various natural disasters is that the aftermath of a disaster can be even worse than the disaster event itself. Thus, there is a need to acknowledge the necessity for efforts towards disaster prevention. However, people are often surprised by the concept of reducing disasters. How, it is often asked, can a natural disaster such as an earthquake or a cyclone be reduced or prevented? Natural occurrences such as floods, earthquakes, cyclones, etc., simply cannot be avoided altogether, they are a part of the environment we live in. What can be done, however, is to take preventive measures at various levels of society in order to make the impact of such natural hazards as harmless as possible for people and peoples properties. The impact of a natural hazard can be reduced, its worst effects can be prevented. Early Warning- Building codes do not exist against storm surge inundation. Prescribed means today to save life and properties against storm surge inundation is to evacuate people to safer places as quickly as possible on receipt of warnings. Coordinated early warning systems against tropical cyclone are now in existence around the globe and it is possible to warn the affected population at least 24 to 36 hours in advance about the danger from a tropical cyclone. By taking advantage of early warning systems, it is now possible by prepared and knowledgeable communities to minimize the loss of lives and properties. Development Planning- There is a need to integrate development plans and regulations with disaster-mitigation. The construction of roads, railways lines, bridges, etc., should be according to the topography and geology of that area in terms of risk and vulnerability. All development projects (engineering and non-engineering) including irrigation and industrial projects should be targeted towards disaster-mitigation. Environmental protection, afforestation programmes, pollution control, construction of earthquake-resistance structures should have priority for implementation. What is important is to introduce a culture of prevention in disaster managers and all communities, at all levels: action to save lives must be taken before disaster strikes. For instance, most of the deaths and casualties in an earthquake are caused not by the earthquake itself but due to the collapse of buildings and concrete structures. Hence earthquake proof features need to be planned and incorporated at the structural design itself. Retrofitting of existing structures will also mitigate the effects of an earthquake. Such preventive measures are essential also in a State like Tamil Nadu considering that much of the State has been upgraded to Zone III in the

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revised seismic Zonation map of India, on par with Latur in Maharashtra. The building control regulations need to be revised accordingly. Financial Arrangements The policy arrangements for meeting relief expenditure related to natural disasters are, by and large, based on the recommendations of successive Finance Commissions. The two main windows presently open for meeting such expenditures are the Calamity Relief Fund (CRF) and National Calamity Contingency Fund (NCCF). The Calamity Relief Fund is used for meeting the expenditure for providing immediate relief to the victims of cyclone, drought, earthquake, fire, flood and hailstorm. Expenditure on restoration of damaged capital works should ordinarily be met from the normal budgetary heads, except when it is to be incurred as part of providing immediate relief, such as restoration of drinking water sources or provision of shelters etc., or restoration of communication links for facilitating relief operations. The amount of annual contribution to the CRF of each State for each of the financial years 2000-01 to 2004-05 is as indicated by the Finance Commission. Of the total contribution indicated, the Government of India contributes 75 percent of the total yearly allocation in the form of a non-plan grant, and the balance amount is contributed by the State Government concerned. A total of Rs.11,007.59 crore was provided for the Calamity Relief Fund from 2000-05. Pursuant to the recommendations of the Eleventh Finance Commission, apart from the CRF, a National Calamity Contingency Fund (NCCF) Scheme came into force with effect from the financial year 2000-01 and would be operative till the end of the financial year 2004-05. NCCF is intended to cover natural calamities like cyclone, drought, earthquake, fire, flood and hailstorm, which are considered to be of severe nature requiring expenditure by the State Government in excess of the balances available in its own Calamity Relief Fund. The assistance from NCCF is available only for immediate relief and rehabilitation. Any reconstruction of assets or restoration of damaged capital should be financed through re-allocation of Plan funds. The initial corpus of the National Fund is Rs.500 crores, provided by the Government of India. This fund is required to be recouped by levy of special surcharge for a limited period on central taxes. Assistance provided by the Centre to the States from the National Fund is to be financed by levy of a special surcharge on the central taxes for a limited period. A list of items and norms of expenditure for assistance chargeable to CRF / NCCF in the wake of natural calamities is prescribed in detail from time to time. There are a number of important ongoing schemes that specifically help reduce disaster vulnerability. Some of these are: Integrated Wasteland Development Programme (IWDP), Drought Prone Area Programme (DPAP), Desert Development Programme (DDP), Flood Control Programmes, National Afforestation & Eco-development Programme (NA&ED), Accelerated Rural Water Supply Programme (ARWSP), Crop Insurance, Sampurn Grameen Rozgar Yojana (SGRY), Food for Work etc.

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The High Power Committee (HPC) constituted by GOI on Disaster Management which submitted its report in October 2001 recommended that at least 10 percent of plan funds at the national, state and district levels be earmarked and apportioned for schemes which specifically address areas such as prevention, reduction, preparedness and mitigation of disasters. The Eleventh Finance Commission too paid detailed attention to the issue of disaster management and, in its chapter on calamity relief, came out with a number of recommendations, of which the following have a direct bearing on the Plan: a) Expenditure on restoration of infrastructure and other capital assets, except those that are intrinsically connected with relief operations and connectivity with the affected area and population, should be met from the plan funds on priority basis. b) Medium and long-term measures be devised by the concerned Ministries of the Government of India, the State Governments and the Planning Commission to reduce, and if possible, eliminate, the occurrences of these calamities by undertaking developmental works. c) The Planning Commission, in consultation with the State Governments and concerned Ministries, should be able to identify works of a capital nature to prevent the recurrence of specific calamities. These works may be funded under the Plan. In order to move towards safer development, development projects should be sensitive towards disaster mitigation. With the kind of economic losses and developmental setbacks that the country has been suffering year after year, it makes good economic sense to spend a little extra today in a planned way on steps and components that can help in prevention and mitigation of disasters, than be forced to spend many multiples more later on restoration and rehabilitation. The design of development projects and the process of development should take the aspect of disaster reduction and mitigation within its ambit; otherwise, the development ceases to be sustainable and eventually causes more hardship and loss to the nation. 
Sources: (1) Draft Tenth Five Year Plan Union Planning Commission (2) Report (October 2001) of High Powered Committee on Disaster Management set up by GOI (Deptt. of Agr. & Coopn., Ministry of Agr.) (3) Disaster Mgm. Plan, Institute of Disaster Management, M.P. & notes of Prateep V. Phillip, IPS (TN).