SOPs for developing a Climate Adaptive and Inclusive Heat Action Plan

focused on vulnerable communities

Rohit Magotra, Deputy

Director, IRADe
1. Introduction

Heat waves are a silent disaster and the number, frequency and duration of heatwaves
in India are rising. Heatwaves caused 10,104 deaths between 2010 and 2022 in India
(GCA, 2023).1 The average temperatures in South Asia’s thermal hotspots are
projected to increase between 1.5 and 3°C by 2050 relative to 1981-2010 (World Bank,
2018)2. Heat stress-induced deaths in 2100 are estimated to be about 85 per 100,000
globally3 and above 100 per 100,000 in lower-income groups. According to the
Climate Change Performance Index 20244, India is among the most vulnerable
globally to the impacts of climate change. The records suggest that though heat waves
have been increasing over the past several years across India, heat-related mortality

Heat Action Plan aims to provide a framework for implementation, coordination and evaluation
of extreme heat response activities that reduces the negative impact of heat waves.

Benefits of Heat Stress Action Plan

• Prevents deaths associated with heat strokes.

• Government commitment to protect the poor and vulnerable citizens.
• Reduces chances of illness due to heat waves.
• Making Indian cities future ready, Climate resilient cities.
• Better preparedness of hospitals/health centres.

has decreased (NDMA)5. The introduction and adoption of heat action plans across
cities of India have helped to reduce heat-related mortality significantly.

It is of utmost importance to design responses to heat waves specific to the pockets

where the vulnerable population live and work. IRADe supported by the International
Development Research Centre (IDRC) and in partnership with the Indian Institute of
Public Health (IIPH), Gandhinagar and the Indian Meteorology Department (IMD)
developed a framework for developing climate adaptive heat action plans 6 focussed
on vulnerable communities which has been adopted by Odisha State Disaster
Management Authority (OSDMA), Rajkot Municipal Corporation, New Delhi Municipal
Council and Government of Delhi. The cities of Rajkot, and Bhubaneshwar have
institutionalised heatwave risk reduction and heat stress adaptive capacities by

1
Global Center on Adaptation, (2023), Heat Stress: The Silent Killer in Indian Cities
2
Mani, M., Bandyopadhyay, S., Chonabayashi, S., & Markandya, A. (2018). South Asia's hotspots: The impact of temperature and
precipitation changes on living standards. World Bank Publications.
3Climate Change and Heat-Induced Mortality in India, Climate Impact Lab 2019
4
German Watch, (2023)The Climate Change Performance Index 2024
5
National Disaster Management Authority (2020), Beating the Heat
6
IRADe et al. (2021). Climate Adaptve Acton Plans To Manage Heat Stress in Indian Cities
enacting ward-level climate adaptive heat action plans through a multi-stakeholder
approach, involving collaboration among administrations, health department,
hospitals, stakeholders, policymakers, experts, scientists and vulnerable
communities.

2. Need for Standard Operating Procedures (SOPs) for Climate Adaptive

Heat Action Plan (HAP)
The need for SOPs for climate-adaptive Heat Action Plan (HAP) arises from the critical
necessity to develop a climate-adaptive heat action plan that effectively addresses the
multifaceted impacts of heat stress on vulnerable populations. These SOPs are
designed to enable the cities to:

• Understand the features of a HAP

• Formulate step-wise methodology to develop and implement vulnerable
community-focused action plans
• Identify Urban heat islands in the cities
• Develop focused and targeted interventions for the cities
• Sensitise and train stakeholders on emergency preparedness in hospitals and
health centres
• Enhance the participation of stakeholders in addressing challenges posed by
heat waves

3. Framework for Developing a Climate Adaptive and Inclusive Heat Action

Plan
Developing a Framework for Climate Adaptive and Inclusive Heat Action Plan is crucial
in addressing the escalating challenges posed by rising temperatures and heat waves.
This framework demonstrates how to formulate climate adaptive focused action plans
for vulnerable communities. It identifies the Urban heat Islands (heat hotspots) in the
city, locates the poor people in these pockets, and assesses the nature and status of
their vulnerability to heat waves. Figure 1 below represents the structure of the
framework developed for Climate Adaptive Heat Action Plans focused on Vulnerable
Communities. The developed framework provides a robust approach to managing
heat stress in urban areas, focusing on understanding the city’s unique vulnerabilities,
engaging key stakeholders, and implementing tailored mitigation and adaptation
strategies. The framework guides local authorities in making informed decisions on
ward level interventions. It outlines strategies, policies, and actions needed to adapt
to increasing temperatures. This includes urban planning, infrastructure upgrades, and
public health interventions.
Figure 1 Framework for Developing a Climate Adaptive and Inclusive Heat Action Plan
focused on Vulnerable Communities

3.1 Know Your City

The initial step in developing a community-responsive Heat Action Plan (HAP) is to
document the city profile drawing upon data from various sources including Urban
Local body records, census data, meteorological reports, healthcare institutions, and
governmental agencies. This analysis aims to elucidate crucial aspects such as
location, climate, demography, local economy, infrastructure services (like water
availability, electricity, health services), and population composition, which lay the
groundwork for understanding the city's vulnerability to heat wave events. By
assessing the city's vulnerabilities and existing initiatives to mitigate heat-related
impacts, stakeholders can identify priority action areas for intervention.

3.2 Climatological Variance

To design climate adaptive heat action plans, it is important to understand the historic
changes in weather parameters like Temperature and Humidity as well as the future
climate projections. The climatology of a city can be accessed through local climate
data available from the India Meteorological Department (IMD) for last 10-30 years.
The deviation of key metrics like maximum and minimum temperatures (Tmax and
Tmin), mean temperature alongside and relative humidity (RH morning, RH evening)
should be collected to understand climate deviations and prepare climate variability
trend maps for the summer season (March, April, May and June). For future
projections, the downscaled data for climate models should be used and future climate
trends made should be plotted to assess future heat [Link] 2 and Figure 3
below give the variations of Mean Monthly Maximum and Minimum Temperatures
(TMax and TMin) for Summer season in Rajkot from 2001-2017.

Figure 2 Variation of Mean Monthly Maximum Temperature Figure 3 Variation of Mean Monthly
(Tmax) for Summer season in Rajkot during 2001-2017
Minimum Temperature (Tmin) for Summer
season in Rajkot during 2001-2017.

The average increase in Tmax value for the summer months of years 2001 to 2017
was 1.095 °C. Out of the 17 summers studied, 16 showed Tmax values above the
climatological mean (38 °C). The maximum deviation (increase) in Tmin value was
observed for March (1.7 °C) and April (1.6 °C). Thus, March and April see increase in
both minimum and maximum temperatures in comparison to reference climatological
mean7

3.3 Urban Heat Island (UHI) Mapping

The increase in temperature within urban centres relative to surrounding rural areas
gives rise to the Urban Heat Island (UHI) phenomenon. The UHI phenomenon poses
significant health risks, livelihoods and productivity. Urban Heat Islands form due to
human activities like industrialisation and urbanisation, which reduce vegetation,
increase surface temperatures, and alter natural wind patterns, creating localised
areas of elevated temperatures within cities.

7
IRADe et al, (2020): Heat Wave Action Plan Rajkot City
UHI should be an integral part of the heat mitigation plan, as these areas with higher
vulnerability need more attention than other parts of the city8. Thermal hotspot maps
give insight into the differences in hot spot distribution within cities, which can be
mapped through remote sensing using land surface temperature (LST) images from
Landsat 8, which can be validated using ambient air temperature (AAT). Further,
ambient air temperature could be collected through Local Automated Weather Stations
or measured through hygrometers in such urban heat islands to help understand and
compare temperature variations with more precision for granular interventions at
ward/block level. UHI maps give insight into the differences in hot spot distribution
within cities. Identifying hot spots within a city can help focus interventions where they
are most needed during heat waves. Such maps provide concise information about
the areas which have the accumulation of thermal hotspots, and therefore the
population living there is under high physiological and socioeconomic risks due to
thermal stress. Thus, specific measures to curb the problem of heat stress for the
resident population can be taken using these maps.

Map 1: Land Surface Temperature (LST) of Delhi on 30 May Map 2:Wards showing LST>57 Deg C (i.e. 95% of highest
2019 ) LST observed) on 30 May 2019)
s.

8
IRADe, (2020): Heat Wave Action Plan Delhi
 3.4 Vulnerability Mapping & Assessment
Vulnerability to heat is defined as a function of: the Cumulative Ward Vulnerability:
degree of exposure to the heat hazard, sensitivity to Rajkot
changes in weather/climate (the degree to which a
person or system will respond to a given change in
climate, including beneficial and harmful effects), and
adaptive capacity (the degree to which adjustments in
practices, processes, or structures can moderate or
offset the potential for damage or take advantage of
opportunities created by a given change in climate).

Vulnerability mapping and assessment are essential

tools to identify vulnerable groups and areas impacted
by heat stress at both city and ward levels. These
vulnerable groups include low-income urban poor/slum
dwellers, shelter less individuals staying in informal
settlements, outdoor workers with high exposure,
construction and casual workers, street vendors, traffic Map 3 Cumulative Ward Vulnerability: Rajkot
police personnel, long-distance non-AC bus/railway
travellers, delivery workforce, people with comorbidities such as hypertension,
cardiac, and kidney ailments, factory workers, residents staying in top floors exposed
to the sun, infants, pregnant mothers, and children.

Understanding the vulnerabilities of these

groups is crucial for developing effective heat
action plans (HAPs) tailored to mitigate the
risks they face. Vulnerability assessments
involve comprehensive surveys to gather data
on various factors such as housing conditions,
access to basic services like sanitation and
electricity, health status, among others to
identify vulnerable areas within the city and
prioritise interventions to safeguard the most at-
risk populations.
In order to comprehensively address
vulnerability to heat waves at the city level, a
systematic Vulnerability Mapping and
Assessment strategy is crucial. This step
involves conducting city-wide surveys and
ward-level assessments to identify vulnerable
populations and areas most prone to heat-
related health risks. By deploying tailored Figure 4 Comprehensive index of compounding factors that tend to
questionnaires in identified urban heat islands, exacerbate climatic impact comprising nine sectors and 26 respective sub
sectors.
a nuanced understanding of vulnerability
dynamics, encompassing health, livelihood, and productivity impacts, can be obtained.
Additionally, conducting cumulative vulnerability studies at the ward level enables the
categorisation of vulnerability levels, aiding in the prioritisation of interventions9.
Furthermore, quantifying wage loss attributable to heat stress offers insights into
economic impacts, guiding targeted intervention strategies. Map 3 shows Heat stress
vulnerability across identified wards in hot spot areas of Rajkot, analysed using a
comprehensive index, comprising of nine sectors - Sanitation, Water, Electricity,
Health, Transportation, Housing, Cooking, Awareness and Heat symptoms and their
respective sub sectors10.

3.5 Estimating Heat Threshold

The city-specific threshold determination is mandatory for an effective early warning
system and many cities across the India lack such city-specific threshold (Golechha,
2021)11. The threshold temperature for a heat wave can be generally defined as the
epidemiological threshold at which the effects of heat begin to provoke excess
mortality attributable to heat. These thresholds also mark the activation of prevention
plans based on public health action to respond to high temperatures12.

The thermal threshold for the city can be calculated by the method described in NDMA
Heat Management Guidelines (2019)13, wherein long-term (10-15 Years) daily
mortality data (Urban Local bodies/ Health Department & Hospitals) for the summer
months collated with Daily Maximum temperature (IMD). A correlation with a simple
scatter plot of the variants will give the visual representation of the rapid rise in
mortality with the rising temperature, which will provide the threshold point. This
threshold will help the city, will help capture the most extreme heat days and their
impact and develop strategies for early warning and early pre-heat mitigation
measures.

9
IRADe et al. (2021). Climate Adaptve Acton Plans To Manage Heat Stress in Indian cities
10
IRADe et al, (2020) Heat Wave Action Plan Rajkot City
11
Golechha et al (2021), Threshold determination and temperature trends analysis of Indian cities for effective implementation of an early
warning system,
12
López-Bueno, J.A., Díaz, J., Follos, F. et al. Evolution of the threshold temperature definition of a heat wave vs. evolution of the minimum
mortality temperature: a case study in Spain during the 1983–2018 period. Environ Sci Eur 33, 101 (2021). [Link]
021-00542-7
13
NDMA (2019), National Guidelines for preparation of Action Plan- Prevention and management of heat wave
 Figure 5 Temperature Mortality Curve (Summer)- Rajkot (2006-2017)

3.6 Heat Stress Impact Assessment

The Heat Stress Impact Assessment focuses on understanding the multifaceted
effects of heat waves on health, livelihood, and productivity, employing a survey-based
approach to assess vulnerability and adaptation strategies within communities,
particularly in slums and low-income areas. Vulnerability and stress are known to have
a differential impact based on several considerations, gender being a critical one.
Ignoring this critical consideration within the context of this initiative might result in an
HAP that is skewed against women or, in the least, fails to have the expected impact
on women. Hence an early decision on ensuring gender mainstreaming within the
methodology as well as crafting a gender-sensitive HAP. The heat stress impact
assessment should:

• Carry out a ward-level household survey to check the impact of heat waves on
the health, livelihood and productivity of the community
• Understand how the communities/groups are mitigating and adapting to
extreme heat
• Draw out key challenges faced by specific groups such as outdoor workers,
and women, among others
• Understand the working conditions of the people due to which they lose their
productivity and livelihood. Try to quantify the loss in monetary terms
 • Do a comparative analysis of different wards and develop a list of key
approaches that are needed to manage heat stress

3.7 Stakeholder Mapping and Capacity Building

Engaging a diverse range of stakeholders is critical to developing an effective Heat
Action Plan (HAP) for the city. This involves identifying key players such as
representatives from the State Disaster Management Authority, NGOs, community-
based groups, media, health departments, private hospitals, and various
governmental departments. Each stakeholder, with their unique expertise and
resources, makes their involvement critical for crafting a comprehensive strategy. By
bringing together stakeholders from different sectors, the HAP can benefit from a
holistic approach that considers various perspectives and ensures the relevance and
effectiveness of the plan across the city.

Stakeholder mapping and capacity building entails a strategic approach to engage

stakeholders at both the city and state levels, ensuring active participation from
communities. This involves conducting a thorough Training Needs Analysis (TNA) to
identify gaps and tailor training programs accordingly. These programmes should be
designed to address specific needs at both the city and state levels, taking into account
local contexts and languages for maximum accessibility and engagement. By fostering
collaboration, identifying training needs, and delivering targeted programmes,
stakeholders can be empowered to play proactive roles in mitigating the impacts of
heat waves and building resilience within the communities.
3.8 Mitigation and Adaptation Strategies

Mitigation and Adaptation Strategies encompass a comprehensive approach to

addressing heat stress, comprising pre-heat, during heat, and post-heat wave
strategies. Sector-wise measures are devised to mitigate and adapt to heat stress,
considering the specific vulnerabilities and risks identified. Further, a consultative
process is employed to develop gender-sensitive interventions, ensuring inclusivity
and addressing diverse needs. By addressing all identified risks and vulnerabilities,
actions and interventions are outlined, along with their financial implications and
benefits. Additionally, a year-round calendar of mitigation and adaptation measures is
formulated, delineating pre, during, and post-heat wave activities, thereby fostering
resilience and enhancing the city's capacity to mitigate the impacts of heat stress.
Table 1 Mitigation strategies for Heat waves

Mitigation Short term Medium term Long-term measures

Strategies measures measures

Buildings
- Rooftop sprinklers - Natural cross - Improving building
enhance evaporation ventilation through bye-laws along
building openings
 - Vegetated surfaces - Retrofitting roofing increasing heat
(eg, so-called green of buildings with tolerance
walls) can also novel coatings that - Passive Cooling
reduce surface are highly reflective techniques to
temperatures increase thermal
- The use of cool comfort
roofs, minimise heat - Learning from
retention Vernacular
Architecture -
orientation, building
material, shading
devices, façade
treatments, openings,
windows
Slums
- Roof painting with - Cooking stoves - Avoid Heat-trapping
white colour - cool and/or open fires building materials
roof planned ventilation - Improved water
- Wet Gunny bags - Open space avoid quality and sanitation
for putting on the tin crowding to avoid, secondarily
roofs/asbestos in - Access to heat increased risk of
slums Information waterborne diseases
- Water tanker - Understanding - Ensuring thermal
campaign- in slums Heat Risk comfort– Affordable
during orange/red Policy intervention
alert Pradhan Mantry Awas
Yojana (Urban_
Community level
- Education to - Provision of water - Incorporation of
community points and Oral indigenous
influencers Rehydration Salts knowledge
- Access to sufficient (ORS) at Public - Capacity building
drinking water and places - Implementing
shaded cooling or all - Stocking ORS and sustainable cooling
mass gatherings cool packs at the strategies -
- Adequate health centres accessible to all
availability of heat - Readiness with sections of society
prevention shock management
information treatments
- Medical camps on
- Outdoor misting day of red alerts at
fans vulnerable locations
 Workplace
- Electric fans - - Awareness - Well Ventilated
improve manual workshops for rooms
work performance occupationally - Temporary rest
- Extra breaks - in exposed stations - sun tents
relatively hot areas (traffic police, (Outdoor Workers)
- Access to water for hawkers, street - Protective clothing
drinking and self- vendors, Design for High heat
dousing construction exposure
- Work shifts to avoid workers)
peak temperatures - Water Facilities
- Hydration around the work area
monitoring and
- Access to clean
lavatory facilities

To ensure the smooth implementation of these strategies, the city's municipal

corporation/committee (ULB) plays a crucial role in institutionalising a heat action-
component within the yearly plans of various government departments. Through a
series of workshops, the ULB facilitates a well-coordinated action plan on the ground,
involving multiple sectors. This coordinated approach brings different sectors together
on ways to mitigate extreme heat, paving the way for the smooth implementation of a
multi-sectoral heat action plan at the ward level.

3.9 Dissemination, Monitoring and Evaluation

Dissemination, monitoring, and evaluation of Heat Action Plans (HAPs) involve a
multifaceted approach to ensure effective implementation and continual improvement
in heat wave management. This includes conducting public outreach campaigns to
raise awareness and establishing heat alerts and early warning systems to promptly
inform communities about impending heat waves. Key officials are assigned roles and
responsibilities outlined in Terms of Reference (ToR) for HAP implementation,
facilitating accountability and coordination. Further, monitoring mechanisms are
instituted to routinely gather information on all aspects of heat wave management,
enabling timely interventions and adjustments. Post-implementation reviews evaluate
achievements, strengths, and areas for improvement, with feedback from
stakeholders for finalisation. A structured process for follow-up and reporting on
changes is outlined in the HAP, ensuring stakeholders are informed and prepared for
subsequent heat wave periods.
Once the heat action plan is
prepared and approved by the
ULB, the next step is its
dissemination among all
government departments and
other stakeholders. It should also
be shared with community
volunteer organisations and
NGOs, especially those closely
working with vulnerable groups.
Additionally, a citywide
communication campaign is Figure 6 Heat Advisory Issued by NDMC (IRADe, 2020)
necessary to alert the general
public about the severity of exposure to extreme heat and the preventive measures to
adopt during heat waves. Collaborating with the health department and community
workers raises awareness among vulnerable groups. Furthermore, working with civil
society and community-based organisations is essential for developing Information,
Education, and Communication (IEC) materials and raising awareness through
various communication methods such as social media, mobile phone messaging,
interpersonal communication, and community outreach, among others. Tailoring
communication methods to target groups' preferences, language diversity, and
accessibility needs is crucial for effective dissemination and understanding of heat
wave alerts and advisories.
4. Conclusion

The pressing challenge of heatwaves in urban India necessitates the urgent

development and implementation of SOPs for Climate Adaptive and Inclusive Heat
Action Plans. By providing a structured framework for preparedness, response, and
recovery, these SOPs empower communities to mitigate the adverse effects of
heatwaves and enhance resilience against future climate-related threats.
Furthermore, SOPs for Climate Adaptive and Ward Level Heat Action Plans foster
collaboration among diverse stakeholders, promoting a multi-sectoral approach to
heatwave management. By integrating climate-resilient practices into urban
governance, these SOPs pave the way for sustainable development and innovation,
ensuring that cities are equipped to withstand the challenges posed by climate change.