DISASTER MANAGEMENT AND MITIGATION

Module-II
Disaster Risk Reduction (DRR): Disaster management cycle – its phases; prevention, mitigation,
preparedness, relief and recovery; structural and non-structural measures; risk analysis, vulnerability
and capacity assessment. Emerging approaches in Disaster Management - Three stages: Pre-disaster
stage (preparedness), Emergency stage and Post Disaster stage – Rehabilitation. Roles and
responsibilities of government, community, local institutions, NGOs and other stakeholders; Policies
and legislation for disaster risk reduction, DRR programmes in India and the activities of National
Disaster Management Authority.

Disaster Management Cycle

The disaster management cycle consists of seven stages: Response, Rehabilitation, Reconstruction,
Development, Prevention, Mitigation and Preparedness, as shown in the Figure 1. Figure 1 depicts the
disaster management cycle: The continuum of Disaster – Response – Rehabilitation – Reconstruction
– Development – Prevention – Mitigation – Preparedness. It is advised that the agencies involved in
the development and humanitarian response follow the whole cycle of disaster management.

Figure 1 Disaster Management Cycle

There are three key phases of activity within disaster management:

1. Pre Disaster: Before a disaster to reduce the potential for human, material or environmental losses
caused by hazards and to ensure that these losses are minimized when the disaster actually strikes.
2. During Disaster: It is to ensure that the needs and provisions of victims are met to alleviate and
minimize suffering.
3. Post Disaster: After a disaster to achieve rapid and durable recovery which does not reproduce the
original vulnerable conditions.
A successful disaster management planning must encompass the situation that occurs before, during
and after disasters.

1. Pre - Disaster Phase

Prevention and Mitigation -
Reducing the risk of disasters involves activities, which either reduce or modify the scale and intensity
of the threat faced or by improving the conditions of elements at risk.
Although the term, prevention is often used to embrace the wide diversity of measures to protect
persons and property its use is not recommended since it is misleading in its implicit suggestion that
natural disasters are preventable. The use of the term reduction to describe protective or preventive
actions that lessen the scale of impact is therefore preferred.
Mitigation embraces all measures taken to reduce both the effects of the hazard itself and the vulnerable
conditions to it in order to reduce the scale of a future disaster. In addition to these physical measures,
mitigation should also be aimed at reducing the physical, economic and social vulnerability to threats
and the underlying causes for this vulnerability. Therefore, mitigation may incorporate addressing
issues such as land ownership, tenancy rights, wealth distribution, implementation of earthquake
resistant building codes, etc.
Preparedness
The process embraces measures that enable governments, communities and individuals to respond
rapidly to disaster situations to cope with them effectively. Preparedness includes for example, the
formulation of viable emergency plans, the development of warning systems, the maintenance of
inventories, public awareness and education and the training of personnel. It may also embrace search
and rescue measures as well as evacuation plans for areas that may be at risk from a recurring disaster.
All preparedness planning needs to be supported by appropriate rules and regulations with clear
allocation of responsibilities and budgetary provision.
Early Warning
This is the process of monitoring the situation in communities or areas known to be vulnerable to slow
onset hazards, and passing the knowledge of the pending hazard to people in harm’s way. To be
effective, warnings must be related to mass education and training of the population who know what
actions they must take when warned.
The Disaster Impact
This refers to the “real-time event of a hazard occurring and affecting elements at risk. The duration
of the event will depend on the type of threat; ground shaking may only occur in a matter of seconds
during an earthquake while flooding may take place over a longer sustained period.
2. During Disaster Phase
Response
This refers to the first stage response to any calamity, which include for examples such as setting up
control rooms, putting the contingency plan in action, issue warning, action for evacuation, taking
people to safer areas, rendering medical aid to the needy etc., simultaneously rendering relief to the
homeless, food, drinking water, clothing etc. to the needy, restoration of communication, disbursement
of assistance in cash or kind. The emergency relief activities undertaken during and immediately
following a disaster, which includes immediate relief, rescue, and the damage, needs assessment and
debris clearance.

3. The Post - Disaster Phase

Recovery

Recovery is used to describe the activities that encompass the three overlappingphases of emergency
relief, rehabilitation and reconstruction.
Rehabilitation
Rehabilitation includes the provision of temporary public utilities and housing as interim measures to
assist long-term recovery.
Reconstruction
Reconstruction attempts to return communities to improved pre-disaster functioning. It includes such
as the replacement of buildings; infrastructure and lifeline facilities so that long-term development
prospects are enhanced rather than reproducing the same conditions, which made an area or population
vulnerable in the first place.
Development
In an evolving economy, the development process is an ongoing activity. Longterm prevention/disaster
reduction measures for examples like construction of embankments against flooding, irrigation
facilities as drought proofing measures, increasing plant cover to reduce the occurrences of landslides,
land use planning, construction of houses capable of withstanding the onslaught of heavy rain/wind
speed and shocks of earthquakes are some of the activities that can be taken up as part of the
development plan.

Concept of Risk:
When a hazard event (such as a drought, flood, cyclone, earthquake or tsunami - among others) occurs,
triggering a loss of life and damage to infrastructure, it highlights the reality that society and its assets
are vulnerable to such events. When discussing disaster risk management, a disaster can highlight the
following in a community:
 The geographical area where the community is settled is exposed to such a hazard;
 The society (including individuals) and its infrastructure, assets and other processes - as well as
services which may have experienced damage or destruction - are vulnerable.
Disaster Risk: This is defined as “the potential loss of life, injury, or destroyed or damaged assets
which could occur to a system, society or a community in a specific period of time, determined
probabilistically as a function of hazard, exposure, and capacity”.

Disaster Risk Reduction:

This is aimed at preventing new and reducing existing disaster risk and managing residual risk, all of
which contribute to strengthening resilience and therefore to the achievement of “sustainable
development".
Disaster risk reduction strategies and policies define goals and objectives across different timescales,
with concrete targets, indicators and time frames.

Disaster Risk Reduction Strategies in India:

India has become UN's greatest match-winner here at the 2017 Global Platform for Disaster Risk
Reduction being the first country to have come up with a national plan and a local strategy for Disaster
Risk Reduction (DRR) and having made significant progress in its commitment to bring down disaster
losses and on the climate change.
India is leading a global intervention on bringing down disaster losses which is pushing more than 26
million people into abject poverty every year hit by natural calamities.
At the global platform, countries need to show their progress made on the Sendai declaration which
binds all signatory UN nations to bring down disaster related deaths and implement the roadmap agreed
upon by 2030.
Sendai Framework:
Third UN World Conference in Sendai, Japan, on March 18, 2015 (UNISDR 2015a) as the successor
instrument to the Hyogo Framework for Action 2005-2015.
It is a non-binding agreement, which the signatory nations, including India, will attempt to comply
with on a voluntary basis.

The four priorities for action under the Sendai Framework are:
1. Understanding disaster risk
2. Strengthening disaster risk governance to manage disaster risk
3. Investing in disaster risk reduction for resilience
4. Enhancing disaster preparedness for effective response and to “Build Back Better” in recovery,
rehabilitation and reconstruction.
Disaster Risk Management:
This is the application of disaster risk reduction policies and strategies, to prevent new disaster risks,
reduce existing disaster risks, and manage residual risks, contributing to the strengthening of resilience
and reduction of losses.
Disaster risk management actions can be categorized into; prospective disaster risk management,
corrective disaster risk management and compensatory disaster risk management (also referred to as
residual risk management).

Levels of Disasters:
The disaster management and its planning at various tiers must take into account the vulnerability of
the disaster-affected area, and the capacity of the authorities to deal with the situation.
Using this approach, the High Power Committee on Disaster Management, in its report of 2001,
categorized disaster situations into three 'levels': L1, L2, and L3.
The period of normalcy, L0, should be utilized for disaster risk reduction.
Level-L1: The level of disaster that can be managed within the capabilities and resources at the District
level. However, the state authorities will remain in readiness to provide assistance if needed.
Level-L2: This signifies the disaster situations that require assistance and active mobilization of
resources at the state level and deployment of state level agencies for disaster management. The central
agencies must remain vigilant for immediate deployment if required by the state.
Level-L3: This corresponds to a nearly catastrophic situation or a very large-scale disaster that
overwhelms the State and District authorities.

The categorization of disaster situations into levels L0 to L3 finds no mention in DM Act 2005.
Further, the DM Act does not have any provision for notifying any disaster as a ‘national calamity’ or
a ‘national disaster’.

The relationship between DRR and DRM

Disaster risk is an indicator of poor development, so reducing disaster risk requires integrating DRR
policy and DRM practice into sustainable development goals.
Historically, dealing with disasters focused on emergency response, but towards the end of the 20th
century it was increasingly recognised that disasters are not natural (even if the associated hazard is)
and that it is only by reducing and managing conditions of hazard, exposure and vulnerability that we
can prevent losses and alleviate the impacts of disasters. Since we cannot reduce the severity of natural
hazards, the main opportunity for reducing risk lies in reducing vulnerability and exposure. Reducing
these two components of risk requires identifying and reducing the underlying drivers of risk, which
are particularly related to poor economic and urban development choices and practice, degradation of
the environment, poverty and inequality and climate change, which create and exacerbate conditions
of hazard, exposure and vulnerability. Addressing these underlying risk drivers will reduce disaster
risk, lessen the impacts of climate change and, consequently, maintain the sustainability of
development.
We need to manage risks, not just disasters.
DRR is a part of sustainable development, so it must involve every part of society, government, non-
governmental organizations and the professional and private sector. It therefore requires a people-
centred and multi-sector approach, building resilience to multiple, cascading and interacting hazards
and creating a culture of prevention and resilience. Consequently, DRM includes strategies designed
to:

 avoid the construction of new risks

 address pre-existing risks
 share and spread risk to prevent disaster losses being absorbed by other development outcomes
and creating additional poverty
Although DRM includes disaster preparedness and response activities, it is about much more than
managing disasters.
Successful DRR results from the combination of top-down, institutional changes and strategies, with
bottom-up, local and community-based approaches. DRM programmes should not be standalone but
instead be integrated within development planning and practice, since disasters are an indicator of
failed or skewed development, of unsustainable economic and social processes, and of ill-adapted
societies. Approaches need to address the different layers of risk (from intensive to extensive risk),
underlying risk drivers, as well as be tailored to local contexts. There is no ‘one-size fits all’ approach
to DRM, but there exist a number of approaches and frameworks, which have been effectively
implemented to reduce disaster risk.

Figure 2 Innova on Curve- From destruc ve to innova ve approach

Disaster Risk Management Cycle - Phases
1. Prevention: Activities aimed at trying to prevent future disasters occurring, such as building dykes
or a dam to control flooding.
2. Mitigation: Activities aimed at trying to mitigate the impact of a disaster if prevention is not possible,
such as building schools to be more earthquake resistant.
3. Preparedness: Activities aimed at trying to prepare communities for a disaster, such as emergency
drills or pre-stocking relief items in logistic hubs.
4. Disaster: An event that causes significant damage to people, property and infrastructure.
5. Response: Activities aimed at understanding needs and responding to them, including rapid
assessments, provision of food and non-food items, provision of water, sanitation and hygiene services,
and health and shelter interventions. In the immediate hours and days after a disaster, when search-
and-rescue activities are critical, it is most often local actors who are first to respond. Information is
often patchy and confused; there can be significant damage to infrastructure, and large movements of
people.
6. Recovery: Activities aimed at trying to return communities to normal life, such as livelihoods
development or formal education.
Recovery activities can start when the disaster has stabilized, and the affected population has access to
food and water and some form of transitional shelter. This stage is sometimes divided into two : early
recovery and medium-term recovery.
7. Reconstruction: Activities aimed at rebuilding infrastructure and housing. This can often take years
and many activities may also blend back into mitigation, such as retrofitting schools to make them
more earthquake resistant.

Figure 3 Disaster Management Cycle

Vulnerability and Capacity Assessment
Vulnerability and Capacity Assessment (VCA) is a participatory investigative process designed to
assess the risks that people face in their locality, their vulnerability to those risks, and the capacities
they possess to cope with a hazard and recover from it when it strikes. Through VCA, National
Societies can work with vulnerable communities to identify the risks and take steps to reduce them by
drawing on their own skills, knowledge and initiative. In sum, VCA helps people to prepare for
hazards, to prevent them from turning into disasters and to mitigate their effects.

How is the VCA carried out?

The VCA process relies on a few key principles:
Data collection: Preliminary data can be collected through the use of questionnaires, developed
specifically for each community or for each type of hazard. However, as information is not always
immediately available on the ground – because of time constraints, security issues or financial
resources – the VCA process also relies on the gathering of secondary data. Precious information about
the community can be gathered from research by government bodies, the United Nations and other
development- and research-based organizations.
Community participation: The goal of the VCA process is to empower the community to allow it to
respond on its own to the risks to which it is subjected – or allow it to identify those who can help it
to respond. For this reason, community members constitute the core of the process. The main criterion
for a successful VCA is the receptiveness of the local community and its willingness to be an active
part of the process. Only if all vulnerable groups are included, can they find collective answers to the
threats they face.
Sharing information: The VCA process helps the community understand its relation to its
environment. Through discussions among neighbors and the collection of data, the community
members will be better able to understand – and therefore reduce – the threats to which it is subjected.
The final VCA document also offers an opportunity to share information beyond the community, by
bringing up issues to the relevant authorities, partner organizations or local leaders.
The VCA is mainly used to identify in advance, and change where possible, the conditions that create
or contribute to the state of vulnerability of at-risk populations.3 As such, the main usefulness of VCA
comes from an improved understanding of the risks and of measures to mitigate that risk. To gather all
information relevant to a better understanding of the community, the following steps have been
followed:

1. Review of secondary sources: this first, crucial, step consists in collecting information that already
exists, to avoid duplicating efforts already carried out. Most of this phase consists in collecting
written material, or identifying all resources relating to a better understanding of the community;
2. Direct observation: A summary presentation of the community, by someone external, often allows
to get a first impression of the local dynamics and main issues;
3. Focus group discussions: The heart of the VCA process lies in this phase of community interaction,
using tools for the involvement of all stakeholders.
How do we reduce risk?
Activities for reducing risk can be described as following two types:
Structural measures: These are any physical construction to reduce or avoid possible impacts of
hazards, or the application of engineering techniques or technology to achieve hazard resistance and
resilience in structures or systems. For instance, land use planning and implementation of building
codes.
Non-structural measures: These are measures not involving physical construction which use
knowledge, practice or agreement to reduce disaster risks and impacts, in particular through policies
and laws, public awareness raising, training and education.
Fundamentally, DRR succeeds in reducing risk by building the strengths, attributes and resources
available within a community, society or organization – collectively known as their capacity. DRM
activities are designed to increase the resilience of people, communities, society, and systems to resist,
absorb, accommodate, and recover from and improve well-being in the face of multiple hazards.
Activities for reducing and managing risks can therefore provide a way for building resilience to other
risks. In addition to development, DRM should therefore be integrated across a number of sectors,
including climate change and conflict.

Risk reduction measures for different types of disasters:

Flood
States in the flood prone areas in India are West Bengal, Andhra Pradesh, Orissa, Kerala, Haryana,
Assam and Uttar Pradesh.
Mitigation measures for flood
Structural measures

 Construction of dam, flood-storage reservoirs, embankments, drainage channels, anti-erosion

and bank stabilisation works, diversion channel, seawalls, levees
 Building shelters
 Making disaster-resistant infrastructure
 Strengthening building through building codes
 Bridge modifications, channel alterations, pumping and land treatment
 Clearance and repair work to rivers

Non-structural measures

 Flood Plain Management (Land use regulations)

 Flood Proofing Including Disaster Preparedness and Response Planning.
 Flood Forecasting and Warning.
 Disaster Relief.
  Flood Fighting including public health measures.
 Flood Insurance
 Preparing flood hazard map
 Compensation
 Relocation
Non-structural measures explained in detail through the following points.
Land use regulations
Next to their important role in reducing the risk due to flooding land use regulations can contribute
substantially to environmental preservation. For example certain land use regulations can lead to the
reduction of surface runoff as well as to the conservation of ecosystems. Furthermore floodplain
zoning can regulate the location of polluting industries and sewage treatment plants, thus preventing
the dispersion of hazardous substances due to flooding.
Flood forecasting and warning
Of all non-structural measures, flood forecasting and warning is the most widely accepted and has
been used since the latter half of the 20th century. Flood forecasting allows concerned people and
authorities to take preventive and emergency measures. Authorities can respond appropriately with
dam operations, opening and closing the gates of various flood management structures, anticipatory
releases to increase reservoir storage capacity, etc. Moreover, hazardous material can be brought away
from the affected area, thus preventing environmental damages.
Floodproofing
Flood proofing, a combination of long-term, non-structural and minor structural measures, as well as
emergency actions, is important not only in reducing damage due to flooding, but also in preventing
the negative impacts on the environment such as the spread of pollutants. It includes provision of quick
drainage facilities such as the cleaning of primary and secondary drainage channels and clogged cross-
drainage works before the onset of the flooding season. Moreover, flood proofing measures include
removing goods, equipment and harmful industrial, agricultural and domestic chemicals, beyond the
area subject to flooding or out of contact with flood waters, by constructing high ground or small
embankments.
Emergency preparedness, response and recovery
The awareness of the community at risk of flooding should be raised and maintained, with a clear
understanding of their role in responding to emergency situations appropriately. This is critical in
organizing coordinated evacuation from the affected area, maintaining healthy and hygienic conditions
and preventing environmental pollution in the flooded areas. Flood-prone populations should be
dissuaded from storing harmful chemicals during the flood season, made aware of likely pollutants in
flood waters and advised of the ways to avoid their adverse impacts. After a flood, the cleaning
operations are undertaken at an emergency level and little attention may be paid to the dumping of
rubbish and debris. If not planned in advance, it may end up in drainage channels, ponds, wetlands or
rivers, impacting the natural ecosystems.
Earthquake
Earthquake-prone regions of India:
Bureau of Indian Standards (BIS) grouped the country into four seismic zones namely Zone-II, Zone-
III, Zone-IV and Zone-V. Of all these four zones, Zone-V is the most seismic active region whereas
Zone-II is the least.
Zone-V covers entire northeastern India, some parts of Jammu and Kashmir, some parts of Ladakh,
Himachal Pradesh, Uttarakhand, Rann of Kutch in Gujarat, some parts of North Bihar and Andaman
& Nicobar Islands.
Zone-IV covers remaining parts of Jammu & Kashmir, Ladakh and Himachal Pradesh, Union Territory
of Delhi, Sikkim, northern parts of Uttar Pradesh, Bihar and West Bengal, parts of Gujarat and small
portions of Maharashtra near the west coast and Rajasthan.
Zone-III comprises of Kerala, Goa, Lakshadweep islands, remaining parts of Uttar Pradesh, Gujarat
and West Bengal, parts of Punjab, Rajasthan, Madhya Pradesh, Bihar, Jharkhand, Chhattisgarh,
Maharashtra, Odisha, Andhra Pradesh, Tamil Nadu and Karnataka.
Zone-II covers remaining parts of the country.
Mitigation measures for earthquakes
Structural measures

 Retrofitting of buildings, structures.

 Shear Walls; removal of cripple walls; foundation anchor bolts; frame anchor connections;
floor framing; chimney reinforcement; base isolation system etc.
 Construction of earthquake-resistant structures
 Construction of community shelters
 Designing a detection system to recognize earthquakes.
 Design a Ground movement monitoring system
Non-structural measures

 Review and updation of building codes

 Implementation of building codes
 Relocation
 Land-use planning programs
 Evacuation planning, and emergency response preparedness
 Community Awareness and Education Programs
 Risk mapping involves presenting the likelihood and consequence component in the format of
a physical map, with figures based upon a specific hazard of set of hazards.
 Dissemination of information materials on do's and don'ts at the time of disaster.
 Early warning
 Insurance
 Disaster Relief.
  Compensation
Non-structural measures explained in detail through the following points.
Land Use Planning
Damage of buildings depends primarily upon the soil conditions and topology of the area which are
moderately favorable in the district. Anyhow, to analyze risk, micro zonation planning should take
place. It will help to guide modify land use planning.
Capacity Building and awareness generation
To train architects, engineers, planners and masons in developing safe housing and infrastructure
facilities. Manuals have also been developed outlining methodologies for new constructions and
retrofitting of old ones. A strong legal and enforcement framework with appropriate incentives and
punitive measures is required together with awareness programmes for general public.
Insurance
Insurance brings quality consciousness in the infrastructure and a culture of safety by insisting to
follow building codes, norms, guidelines, quality materials in construction. It would enforce safety
standards by bringing accountability. Hazardous area should be announced, notified and publicly
displayed so that people would be motivated not to settle in those areas and insurance be mandatory in
insurance prone areas. Premiums can be changed on the basis of risk proneness. Drafting a scheme to
incentivize house owners to take up retrofitting of their houses.

Drought
Drought-prone regions of India
On the basis of severity of droughts, India is divided into following regions:
Extreme Drought Affected Areas: Most parts of Rajasthan, particularly areas to the west of the Aravali
hills, i.e. Marusthali and Kachchh regions of Gujarat. Included here are also the districts like Jaisalmer
and Barmer from the Indian desert that receive less than 90 mm average annual rainfall.
Severe Drought Prone Area: Parts of eastern Rajasthan, most parts of Madhya Pradesh, eastern parts
of Maharashtra, interior parts of Andhra Pradesh and Karnataka Plateau, northern parts of interior
Tamil Nadu and southern parts of Jharkhand and interior Odisha are included in this category.
Moderate Drought Affected Area: Northern parts of Rajasthan, Haryana, southern districts of Uttar
Pradesh, the remaining parts of Gujarat, Maharashtra except Konkan, Jharkhand and Coimbatore
plateau of Tamil Nadu and interior Karnataka are included in this category.
Structural measures

 Construction of water harvesting structures.

 Revival of traditional water harvesting structures.
  Protecting water sources against contamination, developing water sources – such as micro
dams, ponds and wells, use of reserve sources of groundwater and water rationing/allocation.
 Restoring pastures and balancing land and water resources.
 Recovering the water holding capacity of soils through tree planting (including fruit trees) and
the protection of riverbanks and wetlands
 Shifting to drought tolerant crops
 Managing livestock production within the landscape, including the relocation of herds,
nomadic migrations and use of special reserved areas
Non-structural measures

 Implementing Integrated Water Resources Management (IWRM), such as mitigating upstream-

downstream user conflicts and coordinating between water users, communities and sectors
 Enhancing irrigation schemes
 Diversifying rural livelihoods through social protection, cash-transfer programs or improving
access to markets and rural services: Access to markets could help create alternative non-farm
employment that could reduce the impacts of droughts
 Crop insurance
 Land-use planning
 Community Awareness and Education Programs
 Forecasting and early warning
 Community participation.
 Drought proofing programmes/ schemes
 Research & development
 Cloud seeding: It is a weather modification technique that improves a cloud's ability to produce
rain or snow by introducing tiny ice nuclei into certain types of subfreezing clouds. These
nuclei provide a base for snowflakes to form.
 Disaster Relief.
 Compensation

Landslide
Landslide-prone regions of India
Young mountainous areas in the Himalayas and Andaman and Nicobar.
High rainfall regions with steep slopes in the Western Ghats and Nilgiris.
The north-eastern regions.
Trans-Himalayan areas of Ladakh and Spiti (Himachal Pradesh)
Undulated yet stable relief and low precipitation areas in the Aravali
Rain shadow areas in the Western and Eastern Ghats and Deccan plateau.
Landslides due to the mining and subsidence are most common in the states like Jharkhand, Orissa,
Chhattisgarh, Madhya Pradesh, Maharashtra, Andhra Pradesh, Karnataka etc. Some measures to
mitigate the disasters are:
Structural measures

 Buildings designed and/or placed in locations to withstand the impact forces of landslides and
to provide safe dwellings for people, and escape routes.
 Restriction on the construction and other developmental activities such as roads and dams,
limiting agriculture to valleys.
 Construction of retaining walls, deep shafts, ground anchor wall, chutes, hillside drainage
 Construction of horizontal drain to dewater the land slide
 To fill Slopes and Soil Nailing
 Construction of Community Shelters
 Increasing vegetation
 Drainage Corrections: the most important triggering mechanism for mass movements is water
infiltrating into the land area during heavy rains. Hence the natural way of preventing this
situation is by reducing water infiltration and allowing excess water to move down without
hindrance. Increasing vegetation cover is the cheapest and most effective way of arresting
landslides. This helps to bind the top layer of the soil with layers below, while preventing
excessive water run off and soil erosion.
 Terrace farming should be encouraged in the northeastern hill states.
 Designing detection system i.e. imaging satellites to recognize landslide
Non-structural measures

 Disaster mitigation mapping. It will locate areas prone to slope failures. This will permit to
identify avoidance of areas for building settlements.
 Land-use planning
 Awareness Generations: The public should be educated about signs that a landslide is imminent
so that personal safety measures may be taken and also gathering information or indigenous
methods used to reduce the impact.
 Emergency response preparedness
 Early warning system
 Understanding of the nature’s early warning system: The nature’s early warning system can be
identified as follows: Land cracks on the slope, unusual bulges in the ground/streets, heavy
rainfall (controlled by rain measurements), seeps or saturated ground in areas that are not
usually wet, tree shape formed, water level raise, etc.
 Areas with moderate slopes, and control on the development of large settlements in the high
vulnerability zones, should be enforced.
Emerging approaches in Disaster Management
Emerging approaches in Disaster Management Emerging approaches in Disaster Management-
Three Stages:

 Pre- disaster stage (preparedness)

 Emergency Stage (Disaster Phase or Phase of Catastrophe)
 Post Disaster stage (Rehabilitation/ Recovery Stage)
Pre-disaster stage includes,
1. Preparedness Phase (Phase of readiness)
2. Mitigation Phase (Prevention Phase)
This phase involves planning to respond immediately in anticipating of a disaster.
This includes awareness about emergency exercises or training in various methods of safely vacating
the disaster – stricken areas and first – aid measures.
Such awareness programs must also strengthen the technical and managerial capacity of governments,
organization and communities to minimize the mortality and property loss and enhance disaster
response operations. • Installation of disaster warning systems, emergency communication system,
emergency personnel/contact lists, plenty of food reserves, equipment, water, medicines and other
necessities must be maintained
Phase of readiness includes the following aspects:
• Hazard zone mapping
 Hazard forecasting, warning and prediction
 Disaster preparedness plan
 Preparedness through information, Education & Communication
Mitigation phase is the second aspect of pre-disaster stage
People may begin to think about the measures needed to minimize the effects of similar kind of
probable disaster in future
• For instance, an earthquake that would have damaged improperly constructed houses or a
tsunami that would have washed away the houses in coastal line.
• In such situations, people begin to build stronger buildings that can sustain the impact of
earthquake and encourage the development of green belt by planting more trees along the
coastal line to reduce the impact of tsunami waves on the land.
• Measures essential for effective disaster mitigation include
• Construction of disaster resistant houses
• Decreasing the population pressure in hazard sensitive zones
• Land-use control • High standard of engineering design of built structures
• Promotion of fire resistant structures
• Relocation of existing settlements or infrastructure
Guidelines for mitigation of disaster

• Early Warning Symptoms

• Land use zoning
• Building codes
• Incentives
• Provision of assets at subsidized rates
• Increase public awareness
Role of technology
• Mapping
• Aerial Photography and Remote Sensing
• Communications
• Information Management
Organizations which involved in research and mitigation of disasters
 International Council for Scientific Unions (ICUS)
• Promote international science for welfare of mankind and society
• Encourage interaction of scientists from various disciplines
• Encourage the scientific community across the globe to participate in the international
scientific activities.
 World Federation of Engineering Organizations (WFEO)
• To give importance to the engineering disciplines.
• To encourage practical applications of engineering
• To facilitate engineering knowledge internationally
Emergency stage
The emergency stage (disaster phase or the phase of catastrophe) is the stage at which the crisis. This
phase results in great damage to life, property, environment and health of living beings. The affected
people are in a stage of profound shock.
All efforts are put forth to minimize the problems created by a disaster. These include providing
assistance to the affected population with transport, food and shelter and temporary repairs to damaged
infrastructures.
Thus, the main objective of the response phase is to meet the basics needs of population affected with
disasters until some sustainable arrangement is made for them.
Post - disaster stage

This Stage (recovery or rehabilitation phase) focuses at restoring normalcy in the lives of people and
the infrastructure that include temporary shelters, reconstruction of damaged infrastructure, proper
information to the public, educating people about the health and safety, post trauma counselling
programs by training volunteers to counsel every victim of disaster as they need intensive mental
support to facilitate recovery.
Framework For Disaster Risk Reduction
In an effort to graphically display all of the various components of disaster risk reduction, the United
Nations’s International Strategy for Disaster Reduction developed a framework. Figure 4 is an initial
effort to put disaster risk reduction into perspective given the transdisciplinary nature of the field.

Figure 4: UNISDR Disaster Risk Reduc on Framework (UNISDR, 2004)

The most important aspect of the framework is the context in which disaster risk reduction occurs. It
would therefore only make logical sense to start our explanation of the framework by focusing on the
risk factors. The risk factors (both vulnerability domains and hazards) provide us with the context in
which we need to understand and investigate the various levels of disaster risks. Vulnerability and
capacity analysis, as well as hazard analysis and monitoring provide us with the required disaster risk
information. The above analysis allows for risk identification and also then the assessment of the
possible impact of the hazardous event on vulnerable conditions. Once a disaster risk has been
identified it can be managed. This is done in terms of creating awareness for behaviour change, but
also through the creation of new knowledge. A change in behaviour could be or result in the needed
political commitment for disaster risk reduction. In turn political commitment leads to changes in
policy and governance aimed at enhancing disaster risk reduction capabilities and institutional
capacities. We have many examples where political will has a direct impact on community actions and
the ability of communities to take ownership of their own disaster risk reduction effort. However, a
favourable environment is needed. Through political commitment certain disaster risk reduction
measures can be implemented. This is where the transdisciplinary nature of disaster risk reduction
comes into play. Such actions could include sound environmental management and socio-economic
development practices such as: poverty alleviation; securing and enhancing livelihoods; gender
equality; increased health; emphasis on sustainable agricultural practices; and even certain financial
mechanisms such as social safety nets or even market-based insurance schemes. Certain physical and
technical measures, for example land-use planning, urban and town planning, and the protection of
critical infrastructure such as water and sanitation, electricity and communications are necessary for
disaster reduction. Forming partnerships and networks (whether public-public, public-private or
private-private) all lead to enhanced disaster risk reduction. The identification of the disaster risks
should also be seen as a direct input into the risk reduction measures, e.g. solving a flooding issue by
building a dam or channels.
However, in an ideal world, we would not have disasters if the aspects discussed above were all
adhered to and functioning. We must make peace with the fact that we will never have complete
knowledge of disaster risks, nor the full capacity to reduce their consequences. Some planning for
disaster preparedness is necessary. Information linked to the hazard analysis and monitoring put us in
a position which helps us to understand the various hazard characteristics. This in turn feeds into
possible early warning systems. Identifying of hazard characteristics will provide us with triggers to
monitor. These triggers are the tipping point in the hazardous impact which will guide either our
preparedness or activation of appropriate emergency management contingencies.

Disaster Management in India

Legal and Institutional Framework in India
Disaster management in India has evolved from an activity-based reactive setup to a proactive
institutionalized structure with a holistic approach for reducing risk. The Government of India enacted
the Disaster Management Act, 2005, which envisaged the creation of a three-tier structure comprising
of the National Disaster Management Authority (NDMA), State Disaster Management Authorities
(SDMAs) and District Disaster Management Authorities (DDMAs).

Figure 5 Ins tu onal Framework (Disaster Management Act 2005)

Institutional framework at the National Level

At the national level, overall coordination of disaster management vests with the Ministry of Home
Affairs (MHA). It coordinates with disaster affected states, line ministries, National Disaster
Management Authority (NDMA), National Disaster Response Force (NDRF), National Institute of
Disaster Management (NIDM), Home Guards and Civil Defence, and Armed Forces etc. National
Platform for Disaster Risk Reduction (NPDRR) It is a multi-stakeholder and multi- decision making
body on disaster management. It is chaired by the Union Home Minister with other ministers as its
members. The minister of state in-charge of disaster management in the home ministry and the vice-
chairman of the National Disaster Management Authority are the NPDRR's vice chairpersons.
The minister of each state government and UT dealing with disaster management and mayors of Delhi,
Mumbai, Kolkata, Chennai, Bangalore and Hyderabad are its members too. Four Lok Sabha members
(nominated by speaker) and two Rajya Sabha members (nominated by Chairman) are also its members
along with ten chairpersons of urban local bodies (nominated by the Urban Development ministry).
Its functions include to review the progress made in the field of disaster management from time to
time, appraise the extent and manner in which the disaster management policy has been implemented
by the central and state governments, and other agencies concerned. It also advises on coordination
between central and state governments.
 Figure 6 Ins tu onal framework at the Na onal Level

National Executive Committee

Constituted under the DM Act, 2005 and chaired by the Union Home Secretary it acts as the
coordinating and monitoring body for disaster management in India. It also comprises of Secretary
level officers from the Ministries and departments having control of agriculture, atomic energy,
defence, drinking water supply, environment and forests, finance (expenditure), health, power, rural
development, science and technology, space, telecommunications, urban development and water
resources. The Chief of Integrated Defence Staff of the Chiefs of Staff Committee is also its member.
The NEC may give directions to the relevant Ministries/Departments of the GoI, the State
Governments, and the State Authorities regarding measures to be taken by them in response to any
specific threatening disaster situation or disaster as per needs of the State. The Cabinet Committee on
Security (CCS) is involved in decision making if the disaster has serious security implications. The
National Crisis Management Committee (NCMC) deals with major crises that have serious or national
ramifications such as terrorism, hijacking which require involvement of security forces.
National Disaster Management Authority (NDMA)
It is the apex body for disaster management, constituted under the DM Act, 2005 and headed by the
Prime Minister of India.

 It is responsible for laying down the policies, plans, and guidelines for disaster management.
 The guidelines of NDMA assist the Central Ministries, Departments, and States to formulate
their respective Disaster Management (DM) plans.
 It will take such measures, as it may consider necessary, for the prevention of disasters, or
mitigation, or preparedness and capacity building.
 Central Ministries / Departments and State Governments will extend necessary cooperation
and assistance to NDMA for carrying out its mandate.
 It will oversee the provision and application of funds for mitigation and preparedness measures.
 NDMA has the power to authorize the Departments or authorities concerned, to make
emergency procurement of provisions or materials for rescue and relief in a threatening disaster
situation or disaster.
 The general superintendence, direction, and control of the National Disaster Response Force
(NDRF).
 The National Institute of Disaster Management (NIDM) works within the framework of broad
policies and guidelines laid down by the NDMA.
 The NDMA has the mandate to deal with all types of disasters – natural or human-induced.
 However, other emergencies such as terrorism (counter-insurgency), law and order situations,
hijacking, air accidents, CBRN weapon systems, which require the close involvement of the
security forces and/or intelligence agencies, and other incidents such as mine disasters, port
and harbor emergencies, forest fires, oilfield fires and oil spills will be handled by the National
Crisis Management Committee (NCMC).
 Nevertheless, NDMA may formulate guidelines and facilitate training and preparedness
activities in respect of CBRN emergencies.

 Facilitation: Central govt role becomes of that of a facilitator during emergency, gives
assistance to state govt’s.
 Resource mobilization: Providing additional funds, support from army, etc
 Special inputs: By providing various national or international institutions specialised work in
disaster management
 International assistance: Through bilateral or multilateral agreements providing loans.
 Monitoring preparedness and prevention measures: Provide necessary support to hazard prone
area.
 Development Initiatives: Through NITI Aayog and other agencies should start initiatives to
prepare plans
National Institute of Disaster Management (NIDM)

 The vision of NIDM is to create a Disaster Resilient India by building the capacity at all levels
for disaster prevention and preparedness.
 NIDM has been assigned nodal responsibilities for human resource development, capacity
building, training, research, documentation, and policy advocacy in the field of disaster
management.
 The NIDM has built strategic partnerships with various ministries and departments of the
central, state, and local governments, academic, research and technical organizations in India
and abroad and other bi-lateral and multi-lateral international agencies.
 It provides technical support to the state governments through the Disaster Management
Centres (DMCs) in the Administrative Training Institutes (ATIs) of the States and Union
Territories.
 Presently it is supporting as many as 30 such centres. Six of them are being developed as
Centres of Excellence in the specialised areas of risk management – flood, earthquake, cyclone,
drought, landslides, and industrial disasters.

National Disaster Response Force (NDRF)

 National Disaster Response Force (NDRF) Specialist response force that can be deployed in a
threatening disaster situation or disaster.
 Superintendence, direction and control of the NDRF shall be vested and exercised by the
NDMA.
 The command and supervision of the NDRF shall vest with the Director General appointed by
the Government of India.
 The NDRF will position its battalions at different locations as required for effective response.
 NDRF units will maintain close liaison with the designated State Governments and will be
available to them in the event of any serious threatening disaster situation.
 The NDRF is equipped and trained to respond to situations arising out of natural disasters and
CBRN emergencies.
 The NDRF units will also impart basic training to all the stakeholders identified by the State
Governments in their respective locations.
 Further, a National Academy will be set up to provide training for trainers in disaster
management and to meet related National and International commitments.
 Experience in major disasters has clearly shown the need for prepositioning of some response
forces to augment the resources at the State level at crucial locations including some in high
altitude regions.
 The SEC will also provide information to the NDMA relating to different aspects of DM.
Institutional Framework at State Level
State Disaster Management Authority (SDMA)
The DM Act, 2005 mandates the creation of a State Disaster Management Authority with Chief
Minister as the ex-officio Chairperson. It is responsible for laying down the State Disaster Management
Policy and approve the State DM Plans in accordance with the guidelines laid down by the Union. It
is also responsible for coordinating the implementation of the plan and review the measures being
taken for mitigation, capacity building and preparedness by the various state departments.

Co-ordination:
• Crucial role as co-ordinator
• State govt should initiate counter measures
• SG needs to maintain close liaison with the central as well as the district authorities
Preparedness:
• Advance warnings
• Inform district authorities and advise them on suitable line of action
Resource mobilisation:
• Provide necessary funds from state budgeting
State Executive Committee
It is responsible for coordinating and monitoring of DM related activities in the state. The Chief
Secretary of the state is its ex-officio chairperson. It lays down the guidelines for preparation and
implementation of national and state DM plans. It coordinates response in the event of a disaster and
gives directions to departments. It is also responsible for promotion of general awareness and
community training.

Institutional Framework at the District Level

At the district level, District Disaster Management Authority (DDMA), headed by the District
Collector/District Magistrate, is responsible for overall coordination of the disaster management
efforts and planning.
  As per provisions of the Act, each State Government establishes a District Disaster
Management Authority for every district in the State.
 The DDMA is headed by the District Collector with the elected representative of the local
authority as the Co-Chairperson.
 The DDMA prepares the Disaster Management plan for the District and monitors its
implementation. It also ensures that the guidelines laid down by the NDMA and the SDMA are
followed by all the district-level offices. Other roles and responsibilities of the District
Administration and mentioned in the adjoining infographic.
 It will, inter alia, prepare the DM plan for the District and monitor the implementation of the
all relevant national, state, and district policies and plans.
 The DDMA will also ensure that the guidelines for prevention, mitigation, preparedness, and
response measures laid down by the NDMA and the SDMA are followed by all the districtlevel
offices of the various departments of the State Government.

Evacuation

 Advance warnings
 Plans at district level should sufficiently provide for this
Relief & Rescue operations

 District headquarters is the focal point for all rescue and relied activities
Damage Assessment and Information Collection
• Based of the assessment carried by district authorities funds and other resources can be
mobilised at state or national or international level.

Financial Arrangements under National Disaster Management Act, 2005

National Disaster Response Fund is a fund managed by the Central Government for meeting the
expenses for emergency response, relief and rehabilitation. If the requirement of funds for relief
operations is beyond the funds available in the State Disaster Response Fund account, additional
Central assistance is provided from National Disaster Response Fund. The National Calamity
Contingency Fund (NCCF) introduced by 11th Finance Commission was merged with NDRF.
The State Disaster Response Fund is used only for meeting the expenditure for providing immediate
relief to the victims of disasters.
Roles and Responsibilities of Community
Originally, the word ‘community’ was used to refer to the common people. It is said that ‘the quality
of having something in common’ to ‘a sense of common identity and characteristics’ underlie a
community.
In disaster management, the community has been defined as a group of individuals and households
living at the same location and having the same exposure to hazard, and sharing the same objectives
and goals towards disaster risk reduction.
In the late 20th century, it was realized that top-down disaster management efforts are insufficient to
reduce the impact and do not touch the bottom level communities. The government’s developmental
programmes remained insensitive and ineffective in satisfying community needs. It was also found
that the lack of involvement of communities in government planning created an attitude of dependency
on the government.
Unless there is direct involvement of the community in the government decision-making process, the
existing resources, the local needs, and the local knowledge to reduce the impact of disaster cannot be
understood.
Further, local people’s participation ensures self-reliance and ensures that emergency management
plans meet local needs. Indigenous knowledge and innovation concerning hazards and mitigation also
play an important role.
Disaster relief and recovery responses do not directly involve the affected communities and frequently
provide inappropriate and unsustainable forms of assistance. Organized communities are always in a
better position to enforce downward accountability.
The bottom-up, community based approach has given opportunities to the community to participate
and share their efforts for reducing the impact of disaster. The communities at the grass-roots level
suffer during every disaster and they respond to it based on their experience and knowledge before any
outside help. The survival strategies of local community members are combination of knowledge and
real world experience.
Arnstein developed eight levels of community involvement in formal decision making (see Table 1).
These levels can be explained in details as below:
Levels of non-participation: This level consists of the two bottom rungs of the ladder:
1) Manipulation and
2) Therapy.
The objective of this is not to enable people to participate in planning and decision making, but to
enable power holders to ‘educate’ the participants.
Levels of tokenism: This level consist of three rungs:
3) Informing,
4) Consultation, and
5) Placation.
The rungs 3 and 4 (informing and consultation) allow ‘have-nots’ to be heard but not to speak.
‘Placation’ is a higher level of tokenism, where ground rules allow ‘have-nots’ to advise in decision
making. However, power holders have the right to decide whether or not the advice should be accepted.

Level of citizen power:

These citizens have the power to participate in decision-making. This level consists of
6) Partnership
7) Delegated Power, and
8) Citizen Control.
Table 1 Ladder for Ci zen's par cipa on

The Challenges of Community Engagement in Disaster Management

Limited Awareness of Disaster Risks and Preparedness Measures
Countries with communities that are aware of and participate in Disaster Risk Reduction (DRR)
activities incur lesser losses due to disasters. While Community Disaster Resilience (CDR) follows a
community-systems model, there has been no operational definition of CDR or model demonstration
of how best to apply these principles in practice in vulnerable communities. While different community
empowerment programs related to disaster mitigation have achieved their objectives, they are often
short-term, and issues on sustainability in these efforts are rarely addressed.
Lack of Trust in Authorities or NGOs
Despite its significance, trust in many of the institutions necessary for effective preparedness has been
declining recently. The legitimacy and significance of anticipated dangers are questioned as a result of
a lack of trust in institutions and organizations, which negatively affects planning and adherence to
advised activities.
Limited Resources or Capacity to Participate in Disaster Planning and Response
Given that disasters are unexpected, local resources are often overwhelmed, and response is facilitated
by first responders which are usually communities. Most of them are very successful during the project
period but gradually diminish as the years pass. The lack of effective participation and capacity
building of the local communities remains a major factor in the lack of sustainability.
Best Practices for Community Engagement in Disaster Management
Involving Communities in the Planning and Decision-Making Process
Communities, due to the lack of awareness, refrain from participating in local disaster preparedness
plans. To ensure that the majority of the community members can participate in the planning and
decision-making process, a meeting with the community representatives should be scheduled at a
convenient time and location to access and prepare for disasters.
Building Trust and Rapport with Communities
For society to be prepared for a health emergency, institutions must have the public’s trust. Leaders
are tasked with creating the societal investments in resources and energy necessary to reduce the effects
of potential health threats through empathy, accurate communication, community partnership, and
effective measures.
Providing Training and Resources for Community-Led Disaster Preparedness And Response Efforts
Disaster mitigation requires training, which ought to be planned for each community. Facilitators must
be able to plan these trainings whilst taking into consideration not only the comfort and availability of
the task force members, the nature of the training module, but also the volume of the community's
masses.
Ensuring that the Needs and Perspectives of Vulnerable or Marginalized Communities are Considered
Social vulnerability is defined in terms of the characteristics of a person or group that affect “their
capacity to anticipate, cope with, resist, and recover from the impact”. A person’s vulnerability to
disaster is influenced by factors like socioeconomic status, age, gender, race and ethnicity, English
language proficiency, and medical issues and disability. To be able to assist these vulnerable
communities within the community, facilitators must initiate conversation with marginalized
communities to understand their needs and in doing so advance community engagement.

Community-Based Disaster Management (CBDM)

Community-based disaster management refers to a procedure whereby the people living in areas that
are vulnerable to disasters or have already experienced one band together to control and manage the
dangers and potentially dangerous circumstances that arise in their surroundings. A comprehensive
strategy for disaster risk reduction and response is known as "community-based disaster management"
(CBDM). It actively incorporates nearby communities in all phases of disaster management.
Identifying, evaluating, and addressing communities' vulnerabilities and capacity in the face of
disasters is the fundamental tenet of community-based disaster management (CBDM).It describes a
procedure for identifying, analyzing, responding to, keeping an eye on, and assessing potential
disasters in order to set up a plan of action. It acts as the hub for carrying out the disaster management
strategy. The foundation of community-based disaster management is the development of volunteer
capacity and training, as community members are the first to respond to emergencies. The goal of
capacity building and training interventions for CBDM must be carefully designed, given the multitude
of stakeholders and community representatives that require sensitization and training. Since it unites
all the vulnerable individuals on a single platform where they may prioritize actions and develop plans,
it is governed by the ideals of equity and inclusion, public accountability, heterogeneity, economies of
scale, and subsidiarity. To be comprehensive, economical, multifaceted, and community-focused,
CBDM should integrate with current institutional frameworks, mainstream practices, and social
welfare delivery initiatives. Due to its very nature, CBDM necessitates a decentralized, bottom-up
strategy that involves extensive micro interventions at the ward, village, or Panchayat level.

Roles and Responsibilities of Local Authorities

Panchayati Raj Institutions (PRI), Municipalities, District and Cantonment Boards, and Town Planning
Authorities, which control and manage civic services, ensure capacity building of their employees for
managing disasters, carrying out relief, rehabilitation and reconstruction activities in the affected areas.
They also prepare their disaster management plans as per the national and state guidelines.
As Local Government in Disaster Management in India, after the 73rd Constitution Amendment Act,
the PRIs have become an opportunity and instrument for people from the grassroots level to directly
join in the decentralized decision-making processes. PRIs provide a platform to discuss local
developmental problems and community needs, and PRIs are also able to mobilize people and
resources to meet the needs of the community. Gram Panchayats are known as a community-based
organization. Gram panchayats had good communication with local officers, doctors, and NGOs for
disaster management.
According to Basin-South Asia, PRIs are located at the best place to motivate people to get involved
in disaster mitigation process. It was also recognized that people’s participation and involvement in
Gram Sansad Sabha help to identify the vulnerable community and potential disaster and its
preparedness. Though PRIs are working for local level developmental planning, many time voices of
villagers have not been recognized. As a result, the disaster management efforts of PRIs are
transformed into mere partisan political activities.
Though Gram Sansad Sabha and PRIs are often politicized, the Gram Panchayat member who belongs
to the village has reciprocity with the villagers. There is an argument that the Gram Panchayat member,
from a socially deprived community, may not have enough voice in the Gram Panchayat. But, during
Gram Sansad Sabha, the members of community share their needs and problems with PRIs. As a Gram
Panchayat member belongs to the village, the existing reciprocity between the Gram Panchayat
member and the community may lead to PRI decisions that are favourable to the community.
Policies and legislation for disaster risk reduction
The Environment Protection Act, 1986
After the Bhopal Gas Leak Tragedy, the Indian Parliament enacted the Environment (Protection) Act
(EPA), 1986 for the purpose of safeguarding and protecting the environment from unregulated
industrial or other activities. Under the EPA, the central Government is entrusted with responsibility
to take all the measures for protecting and improving the quality of the environment and preventing
controlling and abating environmental pollution.
It prohibits persons carrying on any industry, operation or process from discharging or emitting any
environmental pollutants in excess of prescribed standards.
The EPA imposes obligations on persons handling any hazardous substance to follow prescribed
procedure and comply with prescribed safeguards.

Environment Impact Assessment Statement

In the year 1994, a notification was issued by the Central Government under Section 3 of EPA making
it mandatory on the part of all new industrial units and those with intent to modernize or expand to
submit an Environment Impact Assessment (EIA) Statement for the purpose of obtaining clearance
from the Central Government for setting up industrial projects.
The ‘Manufacture, Storage and Impact of Hazardous Chemical Rules’, 1989
In the Year 1989, the Central Government framed the “Manufacture, Storage and Import of Hazardous
Chemical Rules‟, 1987 under the EPA. The principal objective of the rules is the prevention of major
accidents arising from industrial activity, the limitation of the effects of such accidents both on humans
and the environment, and the harmonization of the various control measures and the agencies to
prevent and limit major accidents.
The Coastal Regulation Zone (CRZ) Notification, 1991.
In the year 1991, with a view to protect the fragile ecosystem of the coastal areas in India from
unregulated developmental activities, the Government of India issued Coastal Regulation Zone (CRZ)
Notification under the EPA to control the developmental activities within 500 meters of High Tide Line
(HTL).
The Public Liability Insurance Act, 1991
The parliament also enacted the “Public Liability Insurance Act, 1991‟ to providefor public liability
insurance for the purpose of providing immediate relief to thepersons affected by accidents occurring
while handling hazardous substances.
The Act imposes on the person, who has control over handling any hazardous substance, the liability
to give the relief specified in the Act to all the victims of any accident, which occurs while handling
such substance.
The National Environment Appellate Authority Act, 1997

This Act has been enacted to provide for the establishment of a National Environment Appellate
Authority to hear appeals with respect to restriction of areas in which any industries, operations or
process or class of industries, shall not be carried out subject to certain safeguards under the EPA.
The Natural Disaster Management Act, 2005
The Disaster Management Act, 2005 seeking for an effective management authorities have been
constituted at the National, State and at the District level.
The National Disaster Management Authority (National Authority), which is to be chaired by the Prime
Minister of India is entrusted with the responsibilities for laying down the policies on disaster
management, and approve plans at the national level for disaster management.
"A continuous and integrated process of planning, organising, coordinating and implementing
measures which are necessary or expedient" for the following: 1) Prevention of danger or threat of any
disaster, 2) Mitigation or reduction of risk of any disaster or its severity or consequences, 3) Capacity-
building, 4) Preparedness to deal with any disaster, 5) Prompt response to any threatening disaster
situation or disaster, 6) Assessing the severity or magnitude of effects of any disaster 7) Evacuation,
rescue and relief, and 8) Rehabilitation and reconstruction.
National Policy on Disaster Management (NPDM), 2009

NDMA came up with a ‘National Policy on Disaster Management’ (NPDM) in 2009. It is prepared
with the vision “To build a safe and disaster resilient India by developing a holistic, proactive, multi-
disaster oriented and technology driven strategy through a culture of prevention, mitigation,
preparedness and response”.
Objectives of the National Policy on Disaster Management, 2009

 Promoting a culture of prevention, preparedness and resilience at all levels through knowledge,
innovation and education.
 Encouraging mitigation measures based on technology, traditional wisdom and environmental
sustainability.
 Mainstreaming disaster management into the developmental planning process.
 Establishing institutional and techno-legal frameworks to create an enabling regulatory
environment and a compliance regime.
 Ensuring efficient mechanism for identification, assessment and monitoring of disaster risks.
 Developing contemporary forecasting and early warning systems backed by responsive and
failsafe communication with information technology support.
 Ensuring efficient response and relief with a caring approach towards the needs of the
vulnerable sections of the society.
 Undertaking reconstruction as an opportunity to build disaster resilient structures and habitat
for ensuring safer living.
 Promoting a productive and proactive partnership with the media for disaster management
The National Disaster Management Plan, 2016

The Government of India, for the first time, released its first National Disaster Management Plan in
2016. It has been aligned broadly with the goals and priorities set out in the Sendai Framework for
Disaster Risk Reduction, the Sustainable Development Goals 2015-2030 and the Paris Agreement on
Climate Change at COP-21.
It provides a framework and direction to the government agencies for all phases of disaster
management cycle. It, therefore, specifies who is responsible for what at different stages of managing
disasters.
The plan covers all phases of disaster management: prevention, mitigation, response and recovery. For
each hazard, the approach used in this national plan incorporates the four priorities enunciated in the
Sendai Framework into the planning framework for Disaster Risk Reduction under the five Thematic
Areas for Actions:

 Understanding Risk – This thematic area focuses on understanding disaster risk, the Priority 1
in the Sendai framework. Major action themes a) Observation Networks, Information Systems,
Research, Forecasting, b) Zoning / Mapping, c) Monitoring and Warning Systems, d) Hazard
Risk and Vulnerability Assessment (HRVA), and e) Dissemination of Warnings, Data, and
Information.
 Inter-Agency Coordination - Inter-agency coordination is a key component of strengthening
the disaster risk governance - Priority-2 of the Sendai Framework. The major themes for action
required for improving the top level interagency coordination are a) Overall disaster
governance b) Response c) Providing warnings, information, and data and d) Non-structural
measures.
 Investing in DRR – Structural Measures- Undertaking necessary structural measures is one of
the major thematic areas for action for disaster risk reduction and enhancing resilience. These
consist of various physical infrastructure and facilities required to help communities cope with
disasters.
 Investing in DRR – Non-Structural Measures - Sets of appropriate laws, mechanisms, and
techno-legal regimes are crucial components in strengthening the disaster risk governance to
manage disaster risk, which is Priority-2 of the Sendai Framework. These non-structural
measures comprising of laws, norms, rules, guidelines, and techno-legal regime (e.g., building
codes) framework and empowers the authorities to mainstream disaster risk reduction and
disaster resilience into development activities.
 Capacity Development - Capacity development is a theme in all the thematic areas for action.
The Sendai Priority-2 (Strengthening DRR governance to manage DR) and Priority-3
(Investing in DRR for resilience) are central to capacity development. The capacity
development includes training programs, curriculum development, large-scale awareness
creation efforts, and carrying out regular mock drills and disaster response exercises.
DRR activities of National Disaster Management Authority.
The NDMA plays a crucial role in DRR through various activities, including formulating policies,
developing plans, and providing guidelines for disaster management at the national, state, and local
levels. It also focuses on capacity building, preparedness, and response to disasters, as well as post-
disaster rehabilitation and reconstruction.
Detailed breakdown of the NDMA's DRR activities:
1. Policy and Planning:

 National Disaster Management Plan (NDMP): The NDMA approves the NDMP, which serves
as the overarching framework for disaster management in India.

 State and Local Plans: It lays down guidelines for SDMA and DDMA to develop their
respective disaster management plans, ensuring consistency and alignment with the national
plan.

 Sector-Specific Plans: NDMA approves plans prepared by various ministries and departments
of the government to address specific disaster risks.
2. Capacity Building and Training:

 Training Programs: NDMA conducts training programs and mock drills for disaster
management personnel at all levels, ensuring they are equipped to handle various disaster
situations.

 National Institute of Disaster Management (NIDM): NIDM, under NDMA, focuses on human
resource development, capacity building, and research in disaster management.

 State and Local Level Capacity: NDMA strengthens the capacity of SDMA and DDMA to
effectively manage disasters at their respective levels.
3. Preparedness and Response:

 Multi-Hazard Early Warning Systems: NDMA focuses on developing and strengthening multi-
hazard early warning systems to provide timely warnings to vulnerable populations.
 Disaster Response Operations: NDMA is involved in mobilizing resources for relief and
response to natural disasters, including the operation of control rooms and situation reports.
 Mock Exercises: NDMA organizes mock exercises to assess preparedness and response
capabilities in different disaster scenarios.
4. Mitigation and Prevention:

 Risk Reduction Measures: NDMA encourages the incorporation of risk reduction features into
development programs and schemes.
 Hazard Mapping: NDMA promotes the use of hazard mapping to identify and assess potential
disaster risks.
 Building Codes and Land Use Planning: NDMA advocates for the implementation and
enforcement of building codes and land use regulations to mitigate disaster risks.
5. Post-Disaster Recovery:

 Rehabilitation and Reconstruction: NDMA plays a role in post-disaster rehabilitation and

reconstruction efforts, focusing on restoring infrastructure and livelihoods.

 Long-Term Recovery: NDMA emphasizes the importance of long-term recovery planning to

ensure sustainable development and resilience in disaster-affected areas.
6. Collaboration and Coordination:

 Inter-Agency Coordination: NDMA facilitates coordination among various government

agencies, non-governmental organizations, and other stakeholders involved in disaster
management.

 International Cooperation: NDMA engages in international cooperation to share best practices

and learn from other countries' experiences in disaster management.

Other Activities:
Aapda Mitra Scheme: This scheme focuses on training community volunteers in disaster response,
equipping them with basic rescue and relief skills. The goal is to have 100,000 trained volunteers in
350 multi-hazard disaster-prone districts across India.
Early Warning Systems: The National Cyclone Risk Mitigation Project (NCRMP) has implemented
early warning systems, particularly in coastal areas, to alert communities about impending disasters.
Common Alerting Protocol (CAP) based Integrated Alert System: This system disseminates geo-
targeted early warnings and alerts to citizens through various channels, including SMS, TV, radio, and
cell broadcast.
Extension of Emergency Response Support System (ERSS): This project expands the existing
"112" single distress number to cover all emergencies, including disaster-related calls.

Prime Minister’s Ten-Point Agenda for Disaster Risk Reduction

The Prime Minister, Shri Narendra Modi, enunciated a Ten-Point Agenda in his inaugural speech at
the Asian Ministerial Conference on Disaster Risk Reduction 2016, held in New Delhi during
November 2016 (AMCDRR), which has also been incorporated in the NDMP. The ten key elements
consist of the following:
1. All development sectors must imbibe the principles of disaster risk management
2. Risk coverage must include all, starting from poor households to SMEs to multi-national
corporations to nation states
3. Women’s leadership and greater involvement should be central to disaster risk management
4. Invest in risk mapping globally to improve global understanding of Nature and disaster risks
5. Leverage technology to enhance the efficiency of disaster risk management efforts
6. Develop a network of universities to work on disaster-related issues
7. Utilise the opportunities provided by social media and mobile technologies for disaster risk
reduction
8. Build on local capacity and initiative to enhance disaster risk reduction
9. Make use of every opportunity to learn from disasters and, to achieve that, there must be studies
on the lessons after every disaster
10. Bring about greater cohesion in international response to disasters