Editorial Advisors: KEY IDEA Dr. Ian Davis Cranfield University, UK Kala Peiris De Costa How to Work on Floods? Siyath Foundation, Sri Lanka Khurshid Alam Independent Researcher and Consultant, ooking at the history of floods in Southasia, 2004 and Dhaka, Bangladesh L2007 rate as two of the worst flood years of the past two centuries. Madhavi Malalgoda Ariyabandu This time Bihar had to bear the major brunt of the disaster, with 21 International Strategy for Risk million population affected. The increasing trend over the past Reduction (ISDR) – South Asia, decades regarding frequency and scale of floods is alarming. Experts Sri Lanka already pointed out that floods are not caused by nature's fury alone Mihir R. Bhatt but also by other factors. With some degree of precision one could All India Disaster Mitigation Institute, observe that with the rising number of embankments, which were India meant to regulate the water flow, the areas that are being flooded Dr. Rita Schneider – Sliwa have increased in a parallel manner. It is therefore not far off the Basel University, Switzerland mark to conclude that the prevailing flood management strategy has Dr. Satchit Balsari, MD, MPH done more harm than good. Moreover, other factors like population The University Hospital of Columbia and Cornell, New York, USA increase, changing settlement patterns and climatic change exacerbate the situation as well.

Humanitarian actors - involved with a certain regularity in flood Top front page picture: relief operations in Bihar, Assam or other areas of Southasia - may Sharv Sime slum in Madhubani district, Bihar state. This village was heavily affected during increasingly feel desperate and hopeless, as there does not seem to the flood in the last week of July 2007; water be a way out of the catastrophic conditions prevailing in the worst logging continued for a week. Many people affected areas. Flood disasters do not come alone; hunger, lost their livelihood and house. AIDMI is malnutrition, diseases, debt crisis and migration follow in their wake. currently supporting relief activities in the form of food relief. Later, the Livelihood Relief How to address all these issues? And how to work on more Fund, insurance and advocacy will start. So sustainable solutions instead of just repeating the same relief far, the 140 families that live here received operations, although they may address the need of the day, over and 25 kg of rice and Rs. 250 from the local over again? government.

Bottom front page picture: Only time will tell whether the flood control-establishment will Dabbavas Thakorvas slum in Nadiad. A truck change. But how could it change for the better? It seems that for is used to pump water out of the slum during enhancing more relevance in disaster management solutions the monsoon. See also the article Floods and participation of local communities with their vast experience in living communities, page 9. and coping with floods has to be ensured. This is valid particularly for marginalised groups which normally get most affected by disasters. Therefore, the Government and relevant relief agencies In this issue from outside should involve networks representing the interests of local communities and NGOs already working in the affected areas 1. How to Work on Floods? 2 as major stakeholders in disaster management. Well concerted and 2. 2007 Flood Recovery Agenda for coordinated efforts of all important stakeholders may lead to a more International Agencies: Lessons holistic approach in disaster management, thereby taking into from the Tsunami Evaluation account local needs and expertise to an optimum. Coalition (TEC) 3 Peter Eppler, Programme Coordinator, Swiss Red Cross 3. Urban Risk and Flooding: The International Agenda in South This special issue of southasiadisasters.net is the second of a series of three on Asia 5 flooding in South Asia. In this issue international policies on flood preventation 4. Floods and Cities 9 and mitigation in South Asia, lessons from the Tsunami Evaluation Coalition will be discussed. Based on interviews with local governments in Surat, Vadodara, 5. Floods and Communities 15 Nadiad and Kheda the way municipalities deal with floods will be explain. Final 6. Bihar Flood Damage and Needs and article on floods and communities will give more inside in the way vulnerable Assessment 16 communities live.

2 southasiadisasters.net Special Issue, September 2007 2007 Flood Recovery Agenda for International Agencies: Lessons from the Tsunami Evaluation Coalition (TEC)

gain, heavy monsoon rains humanitarian community from include local communities in Acaused many rivers to overflow supplying aid to supporting and planning and decision-making and flooded several South Asian facilitating communities' own relief through participation and countries. Thousands of people lost and recovery priorities. The bullets consultation, and commitment to their lives, hundreds of thousands below discuss the lessons from the devolve decision-making as far have become homeless and jobless, TEC reports that are especially as possible. and many more have been affected relevant to 2007 flood recovery in the • Capacity should be defined in in one way or another in Nepal, South Asia region. relation to not only skills and Pakistan, India, Bangladesh, training, but also the empower- Myanmar, and Sri Lanka. Again, Support local communities and ment of poorer and marginalised agencies will come to affected areas institutions in managing their own groups. The capacity of a with relief and rehabilitation recovery community to resist disaster is packages. Relief materials will be • Intervening agencies need an particularly sensitive to this. It distributed, partially damaged ability to recognise and identify includes not simply identification shelters will be repaired, and local capacities and the need to of such groups but ensuring that temporary and permanent shelters will be constructed. Some initiatives such as cash for work (e.g. for cleaning up debris dumped across by floods) and cash for shelter will be taken up to temporarily restore livelihoods of those affected. The agencies will then move out and the same story will repeat with another flooding...if history is to repeat itself.

Disasters undoubtedly bring grave consequences for many. Still, they provide an opportunity for sustainable and hazard-resistant development and social transformation towards disaster resilient communities. The lessons and recommendations offered by the Tsunami Evaluation Coalition (TEC) reviews are highly useful for current flood recovery efforts. The TEC was a coalition of 45 local and Source: worldatlas.com/aatlas/infopage/tsunami.htm The Indian Ocean tsunami in December 2004 had devastating effects in many international agencies that dedicated countries on the Indian Ocean. In February 2005, after immediate response to the themselves to learn, from the disaster was over, several humanitarian agencies came together forming the TEC tsunami, how to "do" humanitarian to promote learning from the tsunami response. The coalition aims to improve the work better. The TEC primarily quality of humanitarian action by studying the international response to the advocates for a fundamental tsunami, and to provide accountability to donors and affected people. reorientation of the international

Special Issue, September 2007 southasiadisasters.net 3 particularly their voices are • Empower the affected common beneficiary database, heard in decision-making. individuals or families to assess provided and endorsed by a • Marginalised groups should and prioritise their own welfare central government body, should improve their position in needs by using cash subsidies be an early priority in the relation to communities, and whenever possible. emergency phase3. communities in relation to • Initial assessment teams should district and national authorities. routinely include selected mass Pay special attention to financial The basis for this process is media representatives2. transparency and optimum empowerment through the utilisation of local resources strategic management of Collaborate with affected • Accountability and transparency information, and strengthening communities, government agencies, of intervening agencies should downward accountability. and civil society organisations be improved, particularly with Advocacy is also an important • The international community respect to financial tracking and element but should be based on should ensure that sufficient reporting. enhanced local capacities rather priority is given to enhancing the • Local resources and capital than external interventions1. coordination capacities of local should be valued4. as well as national government Develop a system to rapidly assess bodies. This would include, for Focus on integrating disaster disaster damage and needs of the instance, deploying senior staff recovery efforts with sustainable affected beyond capitals and helping to development • The international community, build the capacity of local • Links between Relief, and in particular the UN and the authorities to utilise information Rehabilitation, and Red Cross movement, should systems such as Humanitarian Development (LRRD) must be either significantly invest Information Centre. Where large more firmly rooted in national politically and financially in a numbers of INGOs are and local contexts and processes. permanent rapid assessment anticipated, the deployment of a • Once links between relief and capacity, or abandon the pretence senior NGO liaison officer rehabilitation have been that initial cross-sectoral assess- should be considered. achieved, greater attention needs ments by external teams guide • Effective, consistent and to be paid to the implications of the immediate international coordinated communication programming for longer-term response of governments, the with recipient populations at all development. public or humanitarian stages of the response—and with • For poverty alleviation, organisations. a concerted effort to include interventions need to be better • Donors and agencies should women in the dialogue—should related to ongoing trajectories. focus their investment on higher be prioritised. This should entail • More consideration needs to be quality needs assessment for dedicated staff resources and given to reducing risks of natural recovery and rehabilitation. tools, with efforts made toward disasters, and anchoring such • In the first few days after a reaching a communications strategies within national disaster, needs assessment should protocol with the host structures for social protection. focus on validating the government. A common strategy • Links between policies and magnitude and severity of the should be developed, including programming should be made disaster. For this purpose, donors the use of public meetings, by sector and through support to should assist national authorities broadcast media, newsletters national and household efforts to in capitalising on remote sensing and posters. bring together relief, reha- and other modern techniques. • The creation and use of a bilitation and development5.

1 Scheper, B., Parakrama, A., S Patel, S., 2006. Impact of the Tsunami Response on Local and National Capacities. Tsunami Evaluation Coalition, London. 2 de Ville de Goyet, C., Morinière, L., 2006. The Role of Needs Assessment in the Tsunami Response. Tsunami Evaluation Coalition, London. 3 Bennett, J., Bertrand, W., Harkin, C., Samarasinghe, S., Wickramatillake, H., 2006. Coordination of International Humanitarian Assistance in Tsunami-affected Countries. Tsunami Evaluation Coalition, London. 4 Flint, M., Goyder, H., 2006. Funding the Tsunami Response. Tsunami Evaluation Coalition, London 5 Christoplos, C., 2006. Links between Relief, Rehabilitation and Development in the Tsunami Response. Tsunami Evaluation Coalition, London.

4 southasiadisasters.net Special Issue, September 2007 Urban Risk and Flooding: The International Agenda in South Asia

n order to investigate the Iinternational agenda on urban risk and flooding, a selection of organisations that are actively engaged in this field is made. This selection is not meant to show the "best" practices or organisations but to give an overview of several international organisations related to disaster risk reduction in South Asia. The policies and activities of the following organisations will be discussed: the UN International Strategy for Risk Reduction, United Nations Development Plan, Asian Flood Network, Associated Programme on Flood Management, World Bank, Oxfam, Asian Development Bank, Christian Aid President Arryo of the Philippines (left) and Haruhiko Kuroda, president of the and Action Aid. Asian Development Bank, during the hand over of a grant to the Philippines to assist the country in the aftermath of landslides in 2006. The UN International Strategy for Source: www.op.gov.ph/photogallery_191206_pc5.asp Disaster Reduction (ISDR) Secondly, the HFA pleas for United Nations Development As the successor integration of disaster risk reducion Programme (UNDP) to the 1990-1999 in development plans. The HFA is a The UNDP engages in International general framework for disaster risk disaster management Decade for Natural Disaster reduction, it is not specified for types through the Disaster Reduction (IDNDR), the International of disaster or geogaphical location. Reduction Unit (DRU) of Strategy for Disaster Reduction was Additionally, the ISDR developed the Bureau for Crisis and adopted by the United Nations guidelines for reducing flood losses Prevention. Disaster General Assembly to provide a in 2001. These guidelines focus on Mitigation and global framework for action to reduce socio-economic aspects of water Vulnerability Reduction has been human, social, economic and related disaster response, key included as one of the five thematic environmental losses from natural elements of flood management, flood areas of the 2003–2007 Country hazards and related technological and forecasting, warning and response Programme. The main objectives environmental disasters6. On the UN systems including: conducting a under this theme are to mainstream World Conference on Disaster vulnerability assessment, use of the community-based approach for Reduction (WCDR) in 2005, the Geographic Information Systems, achieving the integration of disaster Hyogo Declaration and the Hygo risk mapping, structural measures as management in the national and state Framework for Action (HFA) were dams, diversions and channels, development agenda and to enhance adopted. This framework is also establishment of insurance measures, capacities at various levels7. This highlighted in earlier issues of anticipation of climate change effects, reminds us of the goals of the Hyogo southasiadisasters.net. Among other international and inter-agency Framework for Action. In India, the things, the HFA outlines key elements collaboration and training. DRU established a national Disaster of disaster risk reduction. The first key element is the involvement of all stakeholders in disaster management 6 www.unisdr.org/eng/risk-reduction/sustainable-development/cca-undaf/ Integrating-DRR-into-CCA-UNDAF.doc. during, before and after a disaster. 7 http://www.undp.org/bcpr/disred/english/regions/asia/india.htm

Special Issue, September 2007 southasiadisasters.net 5 Risk Management Programme in programmes related to urban risk and Urban and Local Government which the Ministry of Home Affairs disasters are found to be undertaken Strategy. The goal of this strategy is and other key stakeholders are by UN-HABITAT. to (a) improve living standards, (b) involved. In this programme provide a competitive environment communities are helped in disaster The World Bank for the private sector, (c) support preparedness, drills are facilitated as The World Bank is effective management and good part of preparedness, a national plan active in the field of governance of urban areas based on for Disaster Management Training is urban risk through its partnerships, and (d) support established and technology transfers Disaster Management consistent and sound financial in various sectors are done. In Facility, which is now policy12. In March 2007, the World addition, a Gujarat Disaster called the Hazard Risk Management Bank initiated a new policy that Management Programme was started unit (HRM). This facility was created establishes a new mechanism that will though activities are mainly related in 1998 to establish a mechanism for provide initial funding for critical to earthquake preparedness and integrating disaster prevention into start-up activities within a few weeks drought prevention. The DRU started development planning and to of a disaster. The time taken to a programme on urban risk in African improve emergency response disburse funds for longer-term countries as well; however, no special lending. For the HRM, urban areas reconstruction will be cut from nine focus for urban risk and/or urban form a centre of wealth and human months to a targeted 12 weeks by flooding in the Asian—except for resources; urban areas are identified simplifying administrative and India—context was found. as areas for investment. The World processing procedures in the critical Bank engages in two types or urban early stages of recovery. Current United Nations Centre for Human lending in relation to disasters. The projects in India include the Gujarat Settlements-Habitat (UNCHS or UN- first type is lending for reconstruction Emergency Reconstruction Project, HABITAT) following a disaster. The second type Mumbai Urban Transport Project, The mission of is proactive lending for mitigation to Karnataka Urban Water Sector UNCHS is to improve reduce disaster vulnerability. Projects Improvement and the Third Tamil the sustainability of concentrate on repairing Nadu Urban Development Project. human settlements and infrastructure and management of Around 7–12 percent of lending prepare communities to prevent risks the local economy. Mitigation amounts goes to urban lending. and threats. This is done through the funding is more limited and less Disaster Management Programme widespread than reconstruction Though the World Bank is active in (DMP) by developing techniques for funding. Brazil, China, Bangladesh urban management and disaster management, initiating and India account for 40 percent of development, the World Bank is training programmes, promoting the mitigation budget, with 93 heavily criticised for its lending cooperation and strengthening percent addressing floods, forest fires policy, which tends to support large- coordination8. Since understanding or droughts. However, the World scale resource exploitation and vulnerability is key in understanding Bank is striving to give more focus technical environmental projects. disasters, vulnerability assessments more on the prevention and This is also true for its urban are priority for the DMP9. UNCHS is mitigation of disasters10. By making development policy where the World engaged in a partnership with the disaster prevention and mitigation Bank has supported large-scale ISDR. Current programmes in Asia activities central components of technocratic approaches to are the Water for Asian Cities future project loans, the World Bank environmental risk with investment Program (WACP) and the Safer Cities is able to put pressure on national in physical rather than social Program, which concerns crime and planners to integrate disaster infrastructure. The root causes of violence in Asian cities. In India, the planning with development environmental problems is seen as WACP focuses on the state of Madhya planning11. In 1999, the World Bank financial scarcity with targeted and Pradesh. No further specific launched its new urban strategy: The conditional loans as the solution. This

8 http://www.unhabitat.org/content.asp?typeid=19&catid=286&cid=203 9 http://www.unhabitat.org/downloads/docs/866_14075_Vulnerability.pdf 10 http://discuss.worldbank.org/content/interview/detail/1010/ 11 Gilbert and Kreimer, 1999. Gilbert, R and Kreimer, A (1999) Learning from the World Bank's Experience of Natural Disaster Related Assistence, Urban Development Division working paper series #2, World Bank, Washington DC in: Pelling, M. 2003. 12 http://web.worldbank.org/WBSITE/EXTERNAL/TOPICS/EXTURBANDEVELOPMENT/ 0,,contentMDK:20158153~menuPK:337186~pagePK:148956~piPK:216618~theSitePK:337178,00.html

6 southasiadisasters.net Special Issue, September 2007 mode of working stimulates (a) encouraging good governance, and the establishment of the Urban ineffective projects since it overlooks (b) improving urban management, and Environmental Infrastructure local participation and handling of (c) mobilising financial resources, Fund. ADB has also recently large investments through (d) reducing urban poverty, and undergone a review of how it government institutions that often (e) addressing urban development engages community based lack transparency and accountability13. sectors as water supply, organisations in disaster risk sanitation, solid waste management. Oxfam International management, land The activities of Oxfam management, transport and Christian Aid (CA) target poverty reduction housing. From the point of through: food and Though these policies can contribute view of CA, income security, labour to disaster risk reduction, and in this emergency response and trade advocacy, healthcare, context flood prevention and is one of the compounding elements education, emergency response, mitigation, there is limited focus on of addressing poverty in Asia. CA conflict prevention, promoting disaster management. Urban risk and works alongside local partner political and societal participation disaster management are mentioned organisations and builds upon their and identity promotion. Oxfam as a sub section in the policy on local knowledge. It provides International does not have a specific improving urban management. The resources for the local partners policy on urban risk. Floods are dealt policy on urban management entails, engaged in emergency relief. CA with as part of emergency responses. (a) institutional strengthening and provides their partners with technical Examples include the Oxfam capacity building, support and resources to run response in Peru in 2000, Haiti in (b) Urban Land management, emergency response programmes 2005, Gujarat, India in 2006 and (c) urban environmental and to include risk reduction into the Jakarta, Indonesia in 200714. management. long-term work of the partner The mentioned part on disaster organisations16,17. Furthermore, CA Asian Development Bank (ADB) mitigation is highlighted in part c: engages in advocacy in lobbying The ADB recognises the urban environmental management. national governments and high rate of urbanisation The following aspects of disaster international organisations to work in Asia in the last 50 years. mitigation are mentioned: an active on vulnerable conditions of the poor. It expects that over 50% of role for the government, local CA sees community action as the key the Asian population will live in community and the private sector and to emergency response but states that urban areas by 2020. Therefore, the preparedness programmes should be for community based action, early ABD marks urban areas as important in place in order to reduce loss to warning systems need to be in place. points of the economy. In order to be disasters. Disaster management and Christian Aid took action in India in more active in urban areas, the ABD risk reduction measures are not 2006 in the flood-affected states of developed the Urban Sector Strategy. included in the policies of Urban Orissa and Gujarat18. The strategy focuses mainly on Sector Strategy15. In the last 10 years, economic development in Asia. The the ADB has engaged in over 200 Action Aid (AA) strategy entails the following projects (loans, technical assistance AA sees disasters objectives, and grants) which were directed at as unpredictable (a) maximising the economic urban development, mainly events that will efficiency of urban areas, development of infrastructure, have the greatest impact on the (b) reducing urban poverty, housing and transport. Recent poorest in society. Apart from the (c) improving quality of life, and examples of projects in India are the often-dangerous locations that poor (d) achieving more sustainable Rajasthan Urban Development and people live in, the lack of awareness forms of urban development. Infrastructure project, Urban Water and poor access to information and These objectives are to be achieved Supply and Environmental education are marked as through urban sector policies for, Improvement in Madhya Pradesh compounding elements of

13 Pelling, M. 2003 14 http://www.oxfam.org.uk/what_we_do/index.htm 15 http://www.adb.org/Documents/Policies/Urban_Sector/urban0202.asp?p=policies 16 http://www.christian-aid.org.uk/world/emerresp/emerresp.htm 17 http://www.christian-aid.org.uk/world/emerresp/response.htm 18 http://www.reliefweb.int/rw/RWB.NSF/db900SID/OCHA-64D4JX?OpenDocument

Special Issue, September 2007 southasiadisasters.net 7 vulnerability. Practical efforts of AA thereby can contribute to include training local communities in preparedness to disasters. first aid and rescue techniques, equipping community volunteers Associated Programme on Flood with radios for more effective Management (APFM) communication, disaster education in The APFM is a joint initiative schools, village plans and making of the World Meteorological risk maps. AA states that many Organisation and the Global countries do not acknowledge the Water Partnership. It promotes the importance disaster preparedness. concept of Integrated Flood Furthermore, AA has accepted the Management as a new approach to Hyogo Framework for Action as a flood management. The programme guiding thread and is lobbying with is financially supported by the countries to comply with this governments of Japan and the From international perspective to local framework. AA focuses on schools as tradition. Netherlands. The APFM is supporting main centres for disaster prevention countries in the integrated and mitigation19. AA is active in 14 of Currently, several programmes are management of floods within the India's 32 states: main activities running mainly concerning capacity overall framework of integrated include poverty reduction strategies, building and urban governance. No water resources management. APFM promoting effective governance, further specific programmes is doing this through the concepts of supporting woman's rights, concerning urban risk of flooding in Integrated Flood Management. This supporting the poor in vulnerable the Indian context are currently concept entails managing water situations, and helping the poor in undertaken by ADPC. resources in such a way that benefit exploring financial possibilities. from floodplains is maximised and These activities are taking place in Asia Flood Network (AFN) losses of lives and assets due to poor villages and slums in urban The AFN is a flood mitigation flooding are minimised. First, it areas. Emergency response to natural initiative in Asia and is jointly stimulates a participatory approach disasters entails the provision of food, implemented by USAID/OFDA, the involving users, planners and shelter and medicines20. During the National Oceanic and Atmospheric policymakers, gender and cultural 2006 floods in Gujarat, AA's partners Administration (NOAA), and the U.S. aspects. Second, it promotes took action in evacuating people from Geological Survey (USGS), in integrated land and water affected areas, providing meals, cooperation with regional partners in management by making analyses on working with local authorities to Asia. AFN is expected to continue the way land and water ensure proper sanitation facilities and through August 2008. Since 2001, characteristics influence each other. safe drinking water, and advocating USAID/OFDA has supported AFN to Third, it also seeks the positive proper government response21. strengthen the capacity of regional elements of small-scale flooding such and national institutions in climate, as the availability of fresh water. Asian Disaster Preparedness Center weather, and hydrological forecasting. Finally, integrated hazard (ADPC) Through AFN, USAID/OFDA and management approaches should be The ADPC wants to regional partners directly focus on adopted by integrating risk increase the safety of reducing the vulnerability of high- management into wider risk communities by implementing risk communities to hydro- management. Additionally, early programmes and projects that reduce meteorological hazards by promoting warning and forecast methods should the impact of disasters in Asia. ADPC information sharing of hydro- be refined and strengthened23. activities include the strengthening meteorological data and information Activities in Asia so far are three pilot of institutional arrangements, on trans-boundary river basins22. The projects in Bangladesh, India and spreading and exchanging AFN is not active in relief operations; Nepal. These pilot projects focussed knowledge on disaster risk it assists in obtaining accurate data on community approaches to flood management and raising awareness. on meteorological events in Asia and management.

19 http://www.actionaid.org/main.aspx?PageID=188 20 http://www.actionaid.org/main.aspx?PageID=23 21 http://www.reliefweb.int/rw/rwb.nsf/db900SID/HMYT-6TVLJF?OpenDocument&rc=3&emid=FL-2006-000070-IND 22 http://www.apfm.info/ifm.htm (accessed on 4-6-2007) 23 http://www.weather.gov/iao/BLT_AFN.php (acessed on 2-6-2007)

8 southasiadisasters.net Special Issue, September 2007 Floods and Cities

n the months of June and July, IAIDMI teams visited the local governments of Kheda, Nadiad, Vadodara and Surat. The goal of these interviews was to get more insight in the manner that local governments view and act upon floods. It can be concluded that AIDMI learned a lot from these interviews since many local governments worked-and still work-very hard to deal with the recurring problem of flooding.

Location Population Area in km2 Kheda 24,000 1 Nadiad 192,000 13 Vadodara Indiranagar slum in the West of Kheda. The thick line above the arrow indicates (Baroda) 1,600 000 96 the flood level. In this slum, AIDMI provided support for livelihood, shelter, road, Surat 4,500 000 155 workshed and drainage building. Affected people were covered under a disaster micro-insurance scheme. Kheda During floods, accessibility becomes floodwater level is several meters. The city of Kheda is surrounded by problematic since roads are flooded Due to a lack of funds, Kheda does the Shedhi and Vatrak rivers on the or destroyed. The floodwaters not have a fire brigade or boats that west, south and east side. During the transport enormous amounts of can be used for rescue operations monsoon season, many smaller rubble and especially mud into the during floods. When a flood occurs, rivers downstream also feed water city. Layers of mud as thick as 2–3 help from other cities is needed and, into Shedhi and Vatrak rivers, causing feet were found in many places after fortunately, given. In this case, accessi- the water level downstream to rise. the floods of 2005 and 2006. Another bility of the area is of course essential. The water that is flowing upstream point of concern is water falling from of these little rivers is thus blocked. terraces of houses. This water falls However, damage in the city is not Therefore, Kheda City can become some 3-5m and can severely damage only material. Especially during the flooded when not even a drop of cement fillings between road tiles. On repeated floods of 2006, people rainwater falls onto it. Especially low- several places, roads are damaged and suffered psycho-social effects when lying areas on the riverbank are clay and sand under the road becomes they had to flee their houses six times prone to flooding. In addition, one humid. This further damages roads in one monsoon season. small low-lying area in the west of in the city. During a situation of Kheda is vulnerable to flooding. The flooding, the drainage system in the In what way does the local chief officer in this city emphasised city is not capable of transporting the government deal with floods? that floods are very different from surplus of water. Further, drainage 1. A number of vehicles are each other. In 2005, there was only systems can also be damaged when specially maintained. In this one flood but its' magnitude was very the floodwaters reach a level of way, vehicles are ready to high. In 2006, there were six much several meters, causing considerable evacuate people in case of smaller floods; however, these floods pressure on the soil and present flooding. In addition, spare parts caused more havoc and damage than underground infrastructure. Even are kept in stock to keep the the flood of 2005. Hence, here we have when a higher capacity drainage vehicles operational. two very important characteristics of system is available, it would not be 2. Leaflets are spread to inform people floods: intensity and frequency. able to function properly when the about the dangers of flooding.

Special Issue, September 2007 southasiadisasters.net 9 3. People who can swim are asked from the source. This means that river from happening. Hence, we see that to be ready in case of emergency. arms further upstream have to be resources are simply needed; disaster 4. A list of phone numbers of diverted into other directions or prevention is not cheap and will not government officials is spread to plains where the water will not affect be sufficient through quick fixes. improve communication during populated areas. Protection measures Through the experiences in Kheda, an emergency. can be built on the riverbanks in the we can see that besides the social 5. The government places west of the city to prevent the water aspects, technical aspects of disaster emergency lights on houses and from coming into the city. Further, risk reduction are very important. other buildings that provide roads can be built of better material Further, hydrological aspects as light during the night. so that they can survive flooding inflow of other rivers and the 6. During city planning, the danger stress. From the interview, it became blocking of water by other rivers have of flooding is taken into account, clear that for people living in low- to be taken into account, since this for example in building roads. lying areas it is not possible to move can cause flooding without rain 7. People can come—and sometimes somewhere else since safer areas are coming to Kheda City directly. they do—to the municipal office already occupied or are too far away in Kheda with ideas how to deal from Kheda City itself. Nadiad: Venice in Gujarat with floods. Nadiad City is located about 60 In Kheda, no concrete disaster kilometres southeast of Ahmedabad. In the beginning of the monsoon management plans are in place. Plans It did not experience many floods in season, contacts are established with are made by the Gujarat State the past, though the city was almost control rooms in Kheda district. In Disaster Management Authority and completely flooded in 2006. What case of danger, representatives of the then passed on to the cities. All contact were the causes of this flood? local government will go to flood- with this government goes through prone areas in Kheda and inform the the district collector. Further, the Nadiad is shaped like a saucer; high people about the situation. In case of training of people—e.g. to learn to lying areas on the edges of the city, immediate danger people are asked— swim—is not possible due to a lack low lying areas at the centre. The and sometimes forced when people of facilities and funds. nearest river is the Shedhi River want to stay—to leave their houses. which flows into the Sabarmati River. We can conclude that despite the few During the monsoon however, the What possibilities did and do exist for resources that are available to deal high water level in Sabarmati River disaster prevention and mitigation? with floods, the local government of prevents the water from the Shedhi The chief officer explained that it Kheda is doing its utmost to handle River to flow into it. This causes the might be possible to divert water the flood and to prevent disasters water level in Shedhi River to rise and threaten Nadiad. Additionally, the geography of Kheda district is an important aspect flooding in the southwest of the district. Large amounts of water reach Kheda District from other districts and even from other states. Due to a decreasing slope gradient from the northeast to the southwest of the district, water will slow down as it flows to the southwest. Also, many rivers intersect in the southwest of Kheda District. All these factors combined with heavy rainfall during the monsoon can cause flooding. These geographical and topographical insights help us to understand the Hanumannagar slum in the North of Kheda. AIDMI provided livelihood relief, shelter flooding situation in a better way. material, communal toilets separately for men and women, a washing and bathing place, a community water tank, road, trees and established a community resource During the flood of 2006, many people centre as well as an insurance scheme. obstructed their neighbourhood or

10 southasiadisasters.net Special Issue, September 2007 society thereby forcing the water level to rise slightly and to flow to other areas in the city. Once floodwater enters Nadiad it is very difficult to get it out and in 2006 water logging continued for 1.5 months after about 400 mm of water fell onto Kheda in less than 72 hours. Infrastructure was especially damaged with many roads destroyed. The representative of the local government in Nadiad said that during the flood Nadiad "looked like Venice". Though this is a nice comparison, Nadiad is of course better off when it just looks like Nadiad.

In what way does Nadiad deal with floods? Disaster management plans Dabbavas Thakorvas slum in Nadiad. Here, AIDMI established community resource are in place; however, the official of center and provided livelihood support and insurance scheme. the local government said that one can never plan for a disaster. Nadiad standing by. This fire brigade did a times of heavy rain. Further, the relies on its previous experiences lot of good work during the floods of Vishwamitri River intersects with a though it has protocols on what to do 2006. Finally, people or families who bigger river around three kilometres in case of flooding. Besides plans that own tractors are asked to help in case south of the city. Since the other river Nadiad has in place, the Gujarat State a flood occurs. After the floods of is much bigger in size and the angle Disaster Management Authority 2006, the local government provided at which the two rivers intersect is (GSDMA) can always intervene in cash and shelter relief to those almost 90 degrees, water from the these plans and make adjustment. In affected. Further, the official said that Vishwamitri River has problems in the end, the GSDMA has to approve there was really a joint effort of the flowing into the other river. When the disaster management plan in any government and local people. People the flow is faster and the water level city. in the city immediately started to act is higher, the water from the upon the situation. Vishwamitri River is blocked. Medicines are stocked and Consequently, the water level of the disinfection powders are ordered. From this interview, we can conclude river in Vadodara will rise even more. Pumps are ordered and old ones that besides the social aspects, This problem will be even worse repaired. After the flood of 2006, the challenges posed by topography and when this situation coincides with construction of a storm drain in geography are also significant. The high tide in the Arabian Sea, since the Nadiad began and is now almost flood situation in Nadiad cannot be bigger river flows into it. During the finished. In this way, it will be fully understood without taking into monsoon season, minor floods occur possible to drain floodwater out of account these characteristics. A second every year. Once every 100 years a the "saucer" of Nadiad. At the important finding is that people flood will occur as significant as that beginning of the monsoon season, a immediately acted upon the situation of 2005. In that year the water level control room in the city itself is and cooperated with the local rose up to 35 ft (10.7m) and 80% of the established. Information about government. city was flooded. Large quantities of rainfall, water level at dams and mud and clay were deposited by the weather forecasts are updated here Vadodara (Baroda) water flow into the city. The zoo was every 2 hours. In case of emergency, This city is located around 80 also heavily affected, some animals the local government has two kilometres southeast of Ahmedabad. died. Pipes for transporting sewage satellite telephones; through this, The River Vishwamitri flows and water were broken and the water communication is possible when land through the city. The river is very transported a lot of trash throughout and mobile connections cannot be narrow in the city; this causes the the city. This choked drainage lines used. Further, a fire brigade is water level to rise quickly during and exacerbated the situation.

Special Issue, September 2007 southasiadisasters.net 11 In what way did—and does— Vadodara deal with the problem of flooding? As a precaution, empty drums are provided to people living in poor areas. In this way, the people will be able to build some rafts and save themselves. Information is spread through radio, television and leaflets. Also, a fire brigade with sufficient capacity is standing by in Vadodara and enough boats are available. The local government also placed emergency sirens on strategic places in the city to warn the population in case of emergency. Also, the local government is able to send mass-SMS messages to areas in the city to inform and/or warn people for possible danger. In city planning, special building codes are in place for Aarab no Takiyo slum in Vadodara. The slum is located near two large ponds that flood prone areas and residential or often overflow after heavy rainfall. commercial zoning in the city is restricted in those areas. The local the floodwaters. Further, we can see water has to be released beforehand. government is planning to deepen that Vadodara has a sufficiently The extra water can then be stored by and widen the Vishwamitri River in equipped fire brigade and boats for the catchment area and river order to prevent the water from search and rescue and transport upstream of the dam. Further, during rising to quickly during rain and to during a flood. the time the water entered the city create a faster and bigger flow in such coincided with the ebb in the Arabian a way that it can flow into the bigger Surat Sea; this caused a flow to the sea river south of Vadodara. Since 1968, Surat did not experience which was not smooth and regular. heavy flooding, until the 2006. Every Though there are artificial Vadodara is able to design its own three years, minor floods occur but embankments in the North of the city, disaster management plans, though no serious damage is caused. Every the water overtopped these measures again the Gujarat State Disaster 5-6 years, Surat experiences a medium and entered the city. As in most in Management Authority has to flood, examples are the floods of 1994, cities, slums were the most affected approve the plan and is always 1998, 2004. This pattern is quite areas. Located in low-lying areas or authorised to make changes to the regular over the years. near or on riverbanks, these areas are plans. The officials present at the prone to flooding. An important interview said that there is only The flood of 2006 was unpredicted; factor in Surat is the high price of contact with senior citizens since Surat was not prepared. The Tapi land. People in "legal" houses live in inhabitants of slum areas do not come River flows through the city to the risky areas to be able to sell it later to the municipal office. Arabian Sea. In 2006, heavy rains for a higher price. The government occurred upstream of the Ukai Dam. official stated that, "we can advise the We can conclude that again The in–and outflow of water through people, but we cannot command geographical characteristics are the dam was not correctly regulated, them." important. The geomorphologic it was a human error. In total, 20 lakh aspects of Vishwamitri River cause cusec (cu feet /sec) were released Most damage was done to the textile the water level to rise, and a part of from the dam. A dam is one part of a industry, then houses and slums. The the solution to prevent Vadodara river delta system and size, in–and highest measured level of floodwater from flooding is to deepen and widen outflow of the dam depend on the was 24 ft (7.3 m). Also livestock and the Vishwamitri River. Also, trash dimension of the catchment area, cattle died du to floodwaters. After forms one of the biggest problems changes in water level due to rain the flood, a massive chlorination and during floods since it will block (location and intensity) and the debit insecticides/disinfection programme drainage lines as it is transported by of the river. Based on these variables, was started directly after the flood.

12 southasiadisasters.net Special Issue, September 2007 The supplies were brought in from lakh (4,00,000) metric tons of mud contact with weather forecasting all over Gujarat. Corporates and were been removed in 30 days services now. In the last five years, pharmaceutical companies even through an enormous operation. disaster management plans have been provided free medicines. During the cleaning operation, developed. Each zone in the city insecticides and sprays were brought makes its own disaster management In what way did Surat deal with the in to prevent diseases. From cities in plan. In making the plans the zones floods? Because the flood in 2006 was surrounding areas, many hurried to also communicate. The official of the so unexpected, the city was not Surat to help and to serve. The people local government further explained prepared. Though some protection in Gujarat showed unity. Very soon, that local people do not come to the walls were built in the north of the there was an enormous shortage of office with ideas. However, NGOs city, these were insufficient to stop water and milk. Apart from the fact and experts on flooding were invited the flood water. During the flood, a that water is a basic need, in Gujarat for meetings about disaster lot of silt and clay was transported making cha (tea) is a part of life. reduction. Further, risk maps are into the city. On many roads, the layer Without cha people do not have a made for the whole city including of mud was between one and three good beginning of the day. Further, elevation, dangerous zones and feet (~ 1m) high. It was not possible facilities for food distribution were industrial hazardous locations. As in to use vehicles, there was no water not sufficient. During the flood, the the other three cities, the local and electricity and all other civic Indian Army assisted on many government makes use of services were not available. Proper occasions. As much as 25 helicopters newspapers, leaflets and radio to communication was not possible, so were deployed and saved many inform and warn people of flood- coordination and information people. related dangers. transfer was difficult. After 2006 Protection walls have been repaired The government took the initiative Before the flood of 2006, no proper and heightened and stone pitching in acting upon the disaster. A central disaster management plans were in has been done at the Ukai Dam. This control room was started which place, now there are. A central control entails the placement of stones on coordinated the activities. From all room as well as control rooms in sloped riverbanks to prevent erosion over Gujarat Sate, vehicles were every city zone have been established. and damaging of protection provided to help the city clean. Two The central control room is in measures. As in the other cities, the thousand vehicles were provided and operation 24 hours a day, the whole GSDMA gives instructions and checks used for the cleaning operation. Four year through. There is also intensive disaster management plans of cities. GSDMA is always able to make changes in the plan according to their knowledge and experience. Trainings are conducted by the GSDMA, but no further training programmes are available.

Conclusion Cities are very different; hence, problems of flooding in each city are also very different. The most important causes of flooding are: • Heavy rain • Geography and topography: the "saucer" of Nadiad, the shape of the riverbed in Nadiad, the slope gradient of Kheda District. • Hydrological aspects: smaller rivers are blocked by bigger rivers; when small rivers feed into a river, cities can become New Ranchhodnagar slum in Surat. This slum was affected by 2005 and 2006 floods. AIDMI provided livelihood support, insurance and established a community flooded without a drop of rain resource centre. falling onto them. Also heavy

Special Issue, September 2007 southasiadisasters.net 13 rainfall combined with high tide • Families who own in the Arabian Sea can result in tractors are asked to stand- flooding by in case of emergency. • Uncollected trash in city streets • A list with phone numbers blocks drainage lines, resulting of key officials of the local in conditions for flooding. This government is made and is also a social problem; trash is spread. thrown on streets and often not • Leaflets are spread to collected and processed in a inform the population proper way. about flood dangers. • Technical aspects: absence of • Emergency lights are protection measures, water placed during the night. falling from terraces causing • Control rooms are considerable damage, established to keep an insufficient quality of roads, overview of the situation. absence of pumps and • Making disaster equipment. management plans (in • Mismanagement of bigger cities). infrastructure, e.g. of the Ukai • Keeping medicines in Dam causing the flood of Surat, stock. 2006. Very old structures are • Keeping the fire brigade easily damaged or destroyed by ready (Kheda does not floodwaters, e.g. a bridge in have fire brigade). AIDMI discussing the flood situation in Surat Kheda City, killing two women. • Cash and shelter relief during an interview with Mr. R. P. Patel of Surat after flooding. Municipal Corporation. Similar Characteristics: • Using disinfection • When the need is very high, the powders to prevent diseases. solution for people living in army was brought in and helped vulnerable areas. the affected city in every district. What are the possibilities for flood • Control rooms started prevention and mitigation? No outbreaks of diseases are reported functioning in the beginning of • Diverting water from the sources in any of the four cities due to the monsoon season. into unpopulated areas (is very massive provision and use of • In every city, enormous amounts expensive). disinfection sprays and powders. of mud were transported into the • Providing funds for equipment Further, in every city the GSDMA has city. (fire brigade, boats, rescue a decisive role. Each plan has to be • In all cities, the population itself materials). checked and approved by the GSDMA was very active during and after • Providing funds for training of and can be adapted. This might the flood. people in vulnerable locations influence the context specific • In all cities, the poorest were hit and facilities (e.g. teaching character of the problems in each city. the hardest. people how to swim, make rafts, As we can learn from this article, the • The most important resources— etc.). smaller cities have to endure the most especially in small cities—are the • Improving existing protection hardships since they are lacking funds people themselves. As in Kheda measures. to effectively work on disaster risk and Nadiad, people started to act • Improving dam management. reduction for the poor. upon the situation immediately. • Designing proper disaster management plans, tailor-made Special thanks to: Cities cope with floods in the in each city itself. Of course, these 1. Mr. M. L. Doshi, Chief Officer, Kheda following ways: plans can be discussed with the 2. Mr. H. Yadav, Mamlatdar, Nadiad • Maintaining a special number of GSDMA. However, the city itself 3. Mr. V. N. Tailor, City Engineer, Mahanagar Seva Sadan, Vadodara vehicles in case of emergency is the most knowledgeable. 4. Mr. H. J. Taparia, Chief Fire Officer, (Kheda). • More involvement of the poor Vadodara Fire and Emergency • People who can swim are asked in making plans. Involvement Services, Vadodara to assist the local government in and intensive communication is 5. Mr. R. P. Patel, Deputy Town Planer, case of flooding. the only way to come to durable and Liasoning Officer, Surat

14 southasiadisasters.net Special Issue, September 2007 Floods and Communities

his article is based on surveys in TKheda, Vadodara and Nadiad, conducted by AIDMI. Surat was not included in this survey. This short article gives an overview of the situation of people living in urban areas affected by floods and pleas for a context specific understanding of a flood situation.

In all three cities, people in the slums mainly work as small vendors or labourers. Many people lost their houses, worth between Rs. 20,000- 50,000/-, although the slum in Baroda was hit the hardest. In addition, many assets of families, such as furniture, utensils and electrical equipment, were damaged. Relief was provided in the cities. Relief was given after approximately three weeks in Kheda, six weeks in Vadodara, and up to The community resource centre (CRC) in Aarab no Takiyo slum, Vadodara. Here, eight weeks in Nadiad. Despite the the community can discuss problems and have meetings with AIDMI teams. Also, long waiting time, only people the CRC is used as a small school to educate children who cannot attend primary Nadiad reported that relief was not school. However, this is not a substitution of primary education. on timely and insufficient to meet their basic needs. In Kheda, about half of the people in Vadodara and Nadiad communities the slums have opted for expressed that raw material (such as Considering the long delay in the microinsurance to protect against grain or inputs for livelihood: wood arrival of relief, this is future disasters. In Vadodara, most for making bats or bamboo to understandable. Further, in all cities, people have insurance, however not construct new houses; and money in all interviewed people carried on for medical issues. In Nadiad, many the form of loans) were the most with the same livelihood activities people do not have insurance. In pressing needs. In being asked what after the flood though in many cases Kheda, many families declared they people would do in case of a new income dropped by about 30%. This would be in great trouble if the man, flood, most people answered they had a large impact since incomes in most cases the breadwinner, would would go to a safer place faster, keep before the floods were just enough to fall ill or die. In this case, the wife of household kits in a safer place, take meet basic needs. Also, all the man is not earning enough to important documents with them, save interviewed people continued to live provide for the family. When money in preparation and if possible on the same location after the floods. children are old enough though, they get insurance. In Kheda, about half of the people can assist in making a livelihood. In have outstanding loans of between Vadodara, about half of the families Again, we can see that slums in Rs. 4000–50,000/-. In Vadodara and declared to be in serious problems different cities face a variety of Nadiad, very few people in the slums when the income-generating person different problems. As mentioned had outstanding loans. After the would fall ill. In Nadiad, most earlier in this edition, every flood floods, most people invested in their families declared that they could situation is different. Every slum houses and needed equipment for manage when the breadwinner needs to be examined in its own their livelihoods. would not be available. In Kheda, context.

Special Issue, September 2007 southasiadisasters.net 15 Bihar Flood Damage and Needs Assessment Severe floods hit the Northern state of Bihar, at the end of July, affecting over 10 million people leaving over 100 people dead. Immediately AIDMI responded and carried out a damage and needs assessment in Madhubani district, one of the poorest and hardest hit districts in the state. In the next issue of southasiadisasters.net, titled: 2007 Floods in South Asia: From Impact to Knowledge, more information about the Bihar floods and activities of AIDMI will be presented.

Community discussion Discussing with affected people Bihar Hasmukh Sadhu facilitating a meeting with a local Chundari Devi, living in an urban slum in Patna, informed organisation and the community to discuss about immediate AIDMI about water logging and floods in their slum areas and transitional needs in "Navghachia Village". and loss of livelihood opportunities

Discussing with local government Temporary shelter Mr. Chandrabhushan, from a local organization, explaining Heavy rains and floods destroyed the house of Kosi Devi and AIDMI about the loss of livelihoods and constraints to left her in this temporary situation with three children. As their responding. land is also washed away, they are not able to harvest this year.

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