PREPAREDNESS ABOUT THIS ISSUE We Can Not Leave Everything to God

tampedes at temples are not new government has made no Sto India. Often taking place at announcements as to how such festive times, these totally avoidable stampedes would be averted in the stampedes are grim reminders of the future. urgent need of crowd management at the institutional level in India. The One way to avoid such stampedes in most recent stampede that took place the future is to use the expertise of near a temple in Madhya Pradesh's the National Institute of Disaster Datia district during Management (NIDM). The NIDM is festivities is no different. The death India's leading think tank active in toll from this totally avoidable the field of disaster management. It disaster stands at 115. This means that frequently draws lessons from past he tragedy at Ratnagarh Mata 115 lives could have been spared a disasters in India and around the Ttemple in Datia on 13th gory end if there was effective crowd world. Most recently it had organised October 2013 served as a grim management. It seems that an a national workshop to learn lessons reminder of India's vulnerability to important activity like crowd from the Uttarakhand floods. Many stampedes. This vulnerability management at temples has been left of its lesson learning events are put underscores the need for effective to the Gods. out into scholarly publications. What crowd management at all levels in the NIDM can now do is to be the country. Perhaps the greatest irony is the fact proactive and find ways to anticipate that Cyclone Phailin that hit the disasters such as for example a This issue of Southasiadisasters.net coastal parts of Odisha and Andhra stampede at Tajmahal or a fire at is devoted to the theme of Crowd Pradesh almost at the same time as Jamnagar Refinery in Gujarat and Management. The concept of crowd the stampede at Datia, claimed only offer scenarios for preparedness and management is particularly a third of the total number of lives response. There is an urgent need for important for a country like India lost in the Datia stampede. This points scenario based contingency planning that witnesses a huge number of to the disconcerting fact that while in India and NIDM can offer tools, public gatherings at religious sites, we possess the capacity to respond to trainings and methods to fulfil this political gatherings, etc. However, natural hazards, the same capacity is need. there is no concerted policy on missing when it comes to responding Crowd Management in India. It to manmade hazards. While the real Another way to avoid such stampedes seems that the important issue of reason of the stampede is yet to be in future is to better utilise the Crowd Management has been left determined, unconfirmed reports National Disaster Management to the gods to manage. suggest that the stampede took place Authority (NDMA), India's apex as some people were trying to jump authority in disaster management Replete with views of experts from the queue and police used batons to with the Prime Minister as its Chair. the field of disaster management, control them. The NDMA has developed a policy this issue provides vital information study with the prestigious Indian on Crowd Management policies, The state government with the Institute of Management Ahmedabad practices and procedures. A list of approval of the state election (IIMA) on crowd management. The major stampedes in India has also commission has wasted no time in study is in public domain. What the been included. announcing an ex gratia of Rs. 1.5 lakh NDMA can do is to hold public to the kin of those killed in the consultations on the Full of insightful articles on Crowd stampede. The government has also recommendation of the study with Management and associated areas, announced an assistance of Rs. 50,000 state authorities and quickly turn the this issue highlights the importance for those who suffered major injuries study into national guidelines for of Crowd Management in the field and Rs. 25,000 to those who suffered managing crowds at religious places. of disaster risk reduction. minor injuries. However, the state Such national guidelines may include

2 southasiadisasters.net March 2014 response strategy, implementation plan, operational support plan and preparedness plan. A budget must also be allocated to make these plans operational. United Nations Children' s Fund (UNICEF) and Save the Children (SC) in India held such contingency planning trainings for civil society organisations and authorities in Assam and Bihar in 2012. It was found a broader involvement of citizens in the process made the plan better in terms of effectiveness. Essentially, any contingency planning ought to make all voices count.

There is a third way to avoid such stampedes in future. The State Source: Nayi Duniya. Disaster Management Authority (SDMA) in Madhya Pradesh has made contingencies; third, building various success decentralised district planning several useful initiatives in the past scenarios; fourth, preparation of a in key states with such up-to-date including involving graduate contingency plan; and last, taking processes and technologies. students to draw up initial District preparedness actions and updating Disaster Management Plans (DDMPs) plans. Now contingency planning is There is yet one more way to avoid where all the involved stakeholders not new to India. Our District such stampedes in future. The District benefitted from the process and a Collectors have done so even before Disaster Management Authorities better quality product—an up-to-date independence of India. However, this (DDMA) in India are mostly a name, plan—came out. The SDMA can do traditional practice needs to be may be with a table and a clerk but similar exercise to review revived and be embedded in the without any budget or team. With contingency planning in such administrative apparatus with up to United Nations Development temples and mosques in the state. This date processes, contexts and Programme (UNDP) and NDMA help will involve five basic steps. First, technologies. Dr. Ashok Khosla, almost all DDMA have DDMPs. A enlisting hazards and conducting risk chairman of Development national audit must be carried out to analysis; second, prioritising Alternatives, has initiated with review if the DDMPs have included Crowd Management into their plan and how well it is addressed. A national review of these plans can be overseen by a Task Force set up by the NDMA in a time bound manner.

Citizens, of all religious background, must not only offer prayers to their respective Gods but also a line in writing to the temple or mosque authorities to start thinking about ways to plan and implement disaster management measures that include Crowd Management. This is in the interest of the citizens. Devotees cannot leave everything to God. God wants us to surrender our pride and

Source: AP Photo ego—but not our preparedness—to Stampede on a bridge across the Sindh River in Datia district in Madhya Pradesh His mercy. state, India. – Mihir R. Bhatt

March 2014 southasiadisasters.net 3 CROWD MANAGEMENT Assam Jatiya Vidyalaya: A Case of Crowd Management at Schools

he All India Disaster Mitigation roles and responsibilities assigned • As soon as the evacuation started TInstitute's (AIDMI) work with among the teachers and students. some of the students were seen four schools in Kamrup (Metro) After all the formalities completed, confused of using which staircase district in Assam has provided some at 1.15 pm the Principal of the school to evacuate to the safe space. key learning in this direction. One of as the incident commander signalled the schools selected was Assam Jatiya the bell-ringer for an alarm to The management of the school after Vidyalaya situated in Noonmati, indicate an earthquake has come. proper analysis discussed these issues Guwahati for the intervention of Everyone inside the classrooms with the school community and plan enhancing school safety and establish practiced Drop-Cover-Hold during out systematically the way to divert it as a "Model School" under "Model the earthquake shaking (the alarm the crowd to each staircase. The class SDMP implementation Project". The continued for 30 seconds) and teachers were briefed about their school is a vernacular medium following which all the students respective class-wise evacuation plan private school run by a trust. It has a along with their class teachers and a second attempt of evacuation huge infrastructure with multistoried evacuated through the established drill was simulated. This time the buildings and more than 1000 evacuation routes using the three crowd was much organized and took enrollments. staircases to the school playground less time to evacuate to the safe space. (the identified safe space). On 25th of January, 2014, AIDMI The above findings brought us to the resource persons with the help of the After the first attempt of evacuation conclusion that though the school was school management conducted a the following points came up as having its established evacuation plan mass evacuation mock drill in the matter of concern- and marked routes but they did not school to test the evacuation • It was observed that despite put much importance to the aspect of preparedness and the efficacy of the being having three staircases, crowd management. The fact lies here established evacuation routes. The most of the crowd tried to is that only with systematic crowd evacuation drill was conducted with evacuate through the commonly management planning we can have 1267 students and more than 50 used staircase (the staircase that effective and fast evacuation with teachers. The school community was is present in the middle of the L- minimum causalities. briefed with all the rules and shaped building) regulation of the evacuation drill with Measures for effective Crowd Management in Schools: • Schools should periodically conduct evacuation drills at regular intervals • Evacuation Maps and evacuation routes should be established and tested • Class-wise evacuation plan should be formulated • School community should be informed with the crowd diversion plan to be exercised during an emergency • Proper information dissemination through effective channels of communication. – Kuldip Kalita Photo: AIDMI.

4 southasiadisasters.net March 2014 RISK MANAGEMENT Need for Stampede Management at School Level

ntroduction I A Stampede takes place when there is panic, fear of un-known and when some action suddenly happens which is not expected. The impulsive action taken by human beings are basically to save their lives. Stampedes have been happening in schools world- wide. It is worth researching why they take place in schools from the lessons learnt from the past episodes and how best these can be avoided by taking preventive measures. This paper tries to give out a reasonable definition of stampede, recount examples of stampede in schools, gaps identified and suggest certain principles for avoidance and management of stampede. Do you know stampede was first noticed among the animals, humans Source: www.thehindu.com The injured girl in the stampede occurred in Govt. Girls Senior Secondary School, followed it!! Khazuri Khas, New Delhi, India.

What is a Stampede stampede will frequently eliminate professional sporting and during A stampede is an act of mass impulse anything in its path. With farmed music events, as these events tend to among herd animals or a crowd of animals, cowboys attempt to turn the involve a large congregation of people in which the herd (or crowd) moving herd into itself, so that it runs people. They also often occur in times collectively begins running with no in circles rather than self-destructing of mass panic, as a result of a fire or clear direction or purpose. Animal by running over a cliff or into a river, explosion, as people try to get away. species associated with stampede or from damaging human life or Deaths from human stampedes occur behaviour include cattle, elephants, property by overrunning human primarily from compressive blue-bulls, wild horses and settlements. Tactics used to make the asphyxiation, not trampling. This is rhinoceros. herd turn into itself include firing a also referred to as crowd crush. The pistol (i.e. using the noise) to make compressive force occurs from both Cattle Stampede, Causes and the leaders of the stampede turn. horizontal pushing and vertical Remedies. Anything unusual may Cowboys also sometimes sing or stacking. start a stampede, especially at night; whistle at night to reassure the herd. things such as lighting a match, Those on watch at night have to be Stampede in Schools and Causes. someone jumping off a horse, a horse careful not to do things which may Schools are more vulnerable to both shaking itself, a lightning strike, a startle the herd, but to ride a distance natural and man-made disasters, as a tumbleweed blown into the herd, or away first (e.g. before dismounting a large number of children, especially "a horse running through a herd horse or lighting a match) so as not under 5 years are assembled in a kicking at a saddle which has turned to cause a stampede. confined space. Stampede in school under its belly" have been known to may take place, after a natural or cause a stampede. Cattle which have Human stampede and Causes. human induced disaster, during just fed and are more spread out are Human stampede most often occur sporting competitions, organized also less likely to stampede. A large during religious pilgrimages, event when a large number of

March 2014 southasiadisasters.net 5 children assemble in confined space, without the supervision of the teachers and school appointments and in schools where there is single stair-case which is small in width.

Incidences of Stampedes in Schools 1. June 16, 1883: Over 180 out of 1,100 children died in the Victoria Hall disaster in Sunderland, England when they stampeded down the stairs to collect gifts from the entertainers after the end of a variety show. Source: AP 2. January 11, 1908: 16 children The aftermath of the fire accident at a school in Dabwali, Haryana, on December were killed in the Barnsley Public 24, 1995. Hall Disaster in Barnsley, South Yorkshire, England. 3. December 21, 2001: 7 children, 10 400 students made a beeline burn victims were sent to nearby to 14 years of age, were crushed towards the stair case towns for treatment. In January 2003, to death due to a stampede on simultaneously. The stair case a one-man commission was set up to the stairway, leading to the was only 4 feet wide. The dead investigate the incident, and to entrance of a nightclub in Sofia, were between 11 and 14 years. calculate the amount of Bulgaria. The school was in a 5 storey compensation owed to the families 4. October 2, 2008: About 20 building and had 4 exits but of the victims. The commission, children died in a stampede in majority of students had chosen headed by Justice TP Garg took over an overcrowded children's dance the one close to their dormitory six years to conclude its report. hall in Tanzania. building because of heavy rains Compensation was eventually set at 5. September 10, 2009: 5 girls died outside. Rs 18 cr (180 million rupees), which and 35 students were injured in was increased to Rs 34 Cr (340 million Govt Girls Senior Secondary Dabwali Fire Accident rupees) by the Punjab and Haryana School, Khazuri Khas, New The Dabwali fire accident occurred on High Court with extra 6% interest to Delhi, India due to confusion 23 December 1995 at Mandi Dabwali, make up for the delay. The money over shifting of classes for the a town in Haryana, India. The was to be jointly supplied by the DAV examination that led to all incident occurred at the Rajiv trust and the Haryana government. students taking the stairs at one Marriage Palace in Dabwali, where The court also directed for strict fire go which led to stampede. Over the local DAV Public School was safety measures in all schools. 1400 students had come in the holding its annual prize distribution school to take their mid term function. A synthetic tent, which had Prevention examination. They were trying been set up inside the building, caught At the individual level, warning signs to make their way up and down alight when an electric generator of a crowd crush include density of a narrow stair case. It was a rainy short-circuited. The fire spread more than four children per square day. The Dy Director of quickly and blocked the main meter, at which each child is being Education was blamed by the entrance; many of the deaths were touched on four sides. To avoid or Judicial Commission set up to caused by the resultant stampede as escape from a crowd crush, it is enquire about the incident and 1,500 people tried to escape through recommended that one should try fix the responsibility for the the single exit door. At least 400 and move sideways, particularly lapses. people died in the fire, and another between swells. 6. Feb. 28, 2013: 8 students (7 boys 160 were injured, half of them with and 1 girl) were killed and 26 serious burns. Some sources estimate There is also a need that each school injured in Yurai Middle School that up to 540 people were killed, 170 should formulate crowd in Xiangxiang City, Hunan of them children. Dabwali Civil management policy, which should be Province, Central China. The Hospital was unable to cope with the followed for all events which can stampede occurred when over number of casualties, so many of the lead to stampede, like sporting

6 southasiadisasters.net March 2014 contests, music concerts, out-doors or c) No arguing with officials or f) The Principal should have close in-doors. going through motions circuit TV of the vulnerable areas, indicating dislike/disdain for a like the gate, stairs and isolated The school should have more number decision. areas in the school for constant of stair cases, depending upon the d) No detaining officials following monitoring and record. strength of the school, number of a contest to request or argue a g) Inculcate in the students mind floors and size of the school. The stair ruling or explanation of actions that there were specific roles for cases should be at-least 6 feet wide. by the officials. the visiting and the host schools. There should be sufficient light in the e) No physical assaulting or Amenities and courtesies should stair case during school hours. showing gestures. be displayed and extended to f) No student should be allowed to visiting school, without Regular evacuation drills should be go near the performer/s in a flaunting the rivalries. practiced to identify which classes/ music or other concert. h) Spectators should not be allowed sections would move down along the in the area where a contest or banister side and which one along the What schools should facilitate: entertainment program is being wall side. a) Provide worthwhile educational held. experiences for all students, i) Detail spotters in the crowd, to Prevention is better than cure. Hence players and spectators. forewarn about any likely the following need to be considered b) Provide enjoyable recreation troubles brewing. while formulating school crowd regardless whether the game is j) No alcohol or other mood management policy for the sporting won or lost. altering substances to be events and programs organized out- c) Knowledge about the rules of the allowed. doors and in-doors: game. Copies of the rules k) Use of bells, air horn, whistles, a) Teachers and others directly pertaining to sportsmanship wooden blocks and other noise associated with inter scholastic should be made available or makers should be allowed program should conduct explained to students before a during in-door contests/ themselves in a sportsmanship tournament, even at the cost of concerts/programs. Bands may spirit. Coaches representing repetition. be allowed before the start, school at inter scholastic athletic d) Leadership should be provided during the breaks and after the activities should be role models by the faculty members of the contest is over. for the students and fans. school with the Principal leading l) 'Rally lines' by spectators, fans b) No degrading/critical remarks the way and delegating and the students on or near the should be made about officials authority, wherever possible. playing field/during introduction during and after a contest either e) For each event teachers and of players or at any other time at competition site, from the student appointments should be before, during and after a game bench, in the locker area or detailed for supervision. should be prohibited. through any public news media. m) Side-line barriers should be erected during all cricket, football and other tournaments and concerts.

Conclusion While the developed countries have felt the need and have formulated crowd management policies in schools to prevent stampedes, it is high time schools in India too start thinking on these lines as stampedes have been happening in India also. – Brig (Dr) BK Khanna, Senior Consultant, NDMA, Mrs Angeli Qwatara, President, Philanthrope, Nina Khanna, Research Scholar, Manav Rachna The aftermath of the fire accident at a school in Dabwali, Haryana. Inetrnational University, Faridabad

March 2014 southasiadisasters.net 7 INFORMATION SHARING Major Stampedes of India tampedes in India are not new. They occur routinely at religious congregations, where many pilgrims and Sdevotees meet an ill-fated death. The most cogent reason for these stampedes occurring at places of religious significance is the lack of crowd management procedures and protocols at such places. The following table gives an overview of the major stampedes that have occurred in India. Sl. Name of the Place Date No. of people dead Source No. Stampede or injured 1. Allahabad, Uttar Pradesh February Over 800 people http://www.siliconindia.com/news/ge Stampede 3, 1954 dead; over 100 neral/Most-Fatal-Temple-Stampedes- people injured in-India--nid-155500-cid-1.html 2. Nashik Kumbh Mela, Nasik’s August 40 pilgrims dead; http://www.siliconindia.com/news/ge Stampede Godavari River 27, 2003 over 125 injured neral/Most-Fatal-Temple-Stampedes- in-India--nid-155500-cid-1.html 3. High School Arignar Anna Model December 42 people dead; http://www.wsws.org/en/articles/200 Stampede in Higher Secondary 22, 2005 37 people injured 5/12/stam-d22.html Central Corporation School in Chennai MGR Nagar, in Central Chennai 4. Jagannath Jagannath Yatra in Puri, January- 6 people dead; http://www.siliconindia.com/news/ge Yatra Orissa July, 2008 12 people injured neral/Most-Fatal-Temple-Stampedes- Stampede in-India--nid-155498-cid-1.html 5. Mandra Satara district of Western January 350 people dead; http://www.siliconindia.com/news/ge Yatra Maharashtra 26, 2005 200 people injured neral/Most-Fatal-Temple-Stampedes- Stampede in-India--nid-155498-cid-1.html 6. Naina Devi Naina Devi temple in August 3, 162 people dead http://indiatoday.intoday.in/story/ma Temple Bilaspur, Himachal 2008 jor-stampedes-in-india/1/126661.html Stampede Pradesh 7. Chamunda Chamunda Devi temple in September 250 dead; http://www.siliconindia.com/news/ge Devi Rajasthan's Jodhpur City 30, 2008 Over 60 injured neral/Most-Fatal-Temple-Stampedes- Stampede in-India--nid-155494-cid-1.html 8. Jehanabad Barabar hills, Jehanabad September 3 people dead; http://www.sify.com/news/three- District district, 70 kilometres (43 03, 2009 25 people injured killed-in-indian-temple-stampede- Stampede miles) from state capital report-news-national-jjdqkdcbfje.html Patna, Bihar 9. Gangasagar Ganges river, West January 7 people dead; http://news.bbc.co.uk/2/hi/south_asia Mela Bengal 13, 2010 20 people injured /8458340.stm Stampede 10. Ram Janki Pratapgarh, Small town of March 4, 63 dead; http://www.telegraph.co.uk/news/wo Temple Kunda, on the northern 2010 Over 100 people rldnews/asia/india/7373068/Scores- Stampede plains of Uttar Pradesh injured killed-in-stampede-at-Indian- temple.html 11. Sabrimala Makara Jyothi Day at January 106 people dead; http://en.wikipedia.org/wiki/2011_Sa Stampede in , 14, 2011 100 people injured barimala_stampede India 12. Bhavnath Bhavnath temple, Gujarat February Killed 6 People; http://www.siliconindia.com/news/ge Temple 19, 2012 Injured 40 people neral/Most-Fatal-Temple-Stampedes- Stampede in-India--nid-155491-cid-1.html 13. Patna Mishap on a bridge along November 14 people dead http://edition.cnn.com/2012/11/19/w Stampede the banks of the river 19, 2012 orld/india-stampede-kills-worshipers/ Ganges in Patna, Bihar 14. Allahabad Allahabad, Uttar Pradesh February 36 people dead http://rt.com/news/hindu-pilgrimage- Railway 10, 2013 stampede-allahabad-885/ Station Stampede 15. Datia Ratangarh, Datia October 115 people dead; http://en.wikipedia.org/wiki/2013_Ma Stampede Madhya Pradesh 13, 2013 110 people injured dhya_Pradesh_stampede 16. Mumbai Near the Malabar Hill January 18 people dead; http://www.nytimes.com/2014/01/18 Stampede residence of Dawoodi 18, 2014 46 people injured /world/asia/india-18-die-in-stampede- Bohra spiritual leader in-mumbai.html?_r=0 Syedna Mohammed Burhanuddin, Mumbai

8 southasiadisasters.net March 2014 DISASTER RESPONSE Proactive Approach to Disaster Response In India: Adoption of Incident Response System

ndia is one of the world's natural up working in isolation resulting in standardize response system in India. Idisaster hotspot but our record of duplication of efforts, critical gaps in Indigenized version of ICS is now response to both, natural and response, turf wars and colossal called IRS (Incident Response manmade disasters in the past has not wastage of both, precious human System). been up to the mark. However, there effort and resources. Hence, there is has been a paradigm shift in our an urgent need to put a standard IRS is a system that eliminates approach to disaster management in system in place to streamline our adhocism and professionalized last one decade and we have response to disasters across all the response to disasters. IRS is a graduated from an approach of disaster prone states. modular system comprising of reaction to a more proactive approach incident response team (IRT). At the of mitigation, preparedness and The Government of India, based on apex of IRS is a 'Responsible Officer' response to disasters, yet we have the recommendations of the High who depending on the level of miles to go. With ever increasing Powered Committee (HPC) in 2002, disaster could be the Chief Secretary population pressures, fast decided to adopt ICS (Incident of a responding state or an affected urbanization and unsafe construction Command System) as one of the best District Collector / District practices disaster vulnerability in a practices of the world to respond to Magistrate. Depending upon the developing country like India is on disasters in India. ICS was developed geographical spread and magnitude the rise. With climate change and by USA to deal with mega forest fires of the disaster, there could be more rampant development, both the in California in the 70s and ever since than one IRTs to respond to a disaster frequency and enormity of natural then the system has been used world or multiple disasters. IRT is led by an and manmade disasters would only over, reportedly successfully. Incident Commander who is assisted increase necessitating large scale Accordingly, the Ministry of Home by Command Staff and General Staff response by multiple agencies as no Affairs (MHA) launched pilot projects in organizing response to a disaster agency, however big can handle in Assam, Gujarat and Andhra (refer Fig 1). mega disasters single handedly. The Pradesh to test ICS in the Indian Uttrakhand tragedy of June 2013 is a environment. It was felt that ICS is a Disaster response is typically a six case in point. Though India has been response centric system and can step process – prepare, assess, plan, managing disasters in the past, there merge with the administrative set up coordinate, implement and monitor. are a number of shortcomings which with relative ease. NDMA, therefore, IRS draws on this process in totality need to be addressed. The response decided to adapt the ICS duly and adopts a unified approach to today has to be far more indigenized so that it is in consonance eliminate gaps in response. To comprehensive, effective, swift and with the administrative structure of eliminate adhocism, IRS entails pre- well planned based on a well- the country to strengthen and nomination of various positions of conceived response mechanism.

Disaster response is a complex exercise which entails involvement of multiple agencies and large scale resources necessitating elaborate planning, detailed coordination, management of resources and synergy amongst the responders to ensure economy of effort and optimal utilization of resources. Often enough, owing to lack of a system of pre-planning and detailed coordination, response agencies end Fig 1: IRT Architecture

March 2014 southasiadisasters.net 9 IRT from amongst various line comprehended better as a system for almost a decade and formalized departments from state / district wherein IRT acts as an engine to drive as IRS in 2010, the pace of administration to act as Command the response effort in a professional institutionalization across the and General staff and lay down their manner and various responding country is yet to pick up. IRS is yet to roles and responsibilities to tackle a agencies join up as modular bogies be utilized in a structured format to disaster. IRS is governed by a number resulting in a well-coordinated respond to a disasters in our country of management principles viz synergized approach. in spite of guidelines issued by the Management by Objectives, Unity of NDMA in July in 2010. Command &Unified Command, National Disaster Management Chain of Command, Transfer of Authority (NDMA) has issued the Though our existing system of Command, Span of Control, common guidelines on IRS titled 'National response has worked in past, there is terminology and a high degree of Disaster Management Guidelines- IRS' enough scope for further accountability& flexibility. It is under Section 6 of the DM Act, 2005 improvement. In view of ever imperative that pre-nominated for effective, efficient and increasing disaster risks and officials and entities are trained in IRS comprehensive management of enormity of disasters, need to and put through mock exercises disasters in India. The vision is to professionalize our response needs during preparedness phase for an minimize loss of life and property by no emphasis. With IRS having been effective response in times of need. strengthening and standardizing the formalized at national level, our disaster response mechanism in the disaster prone states would do well When using IRS, various responding country. LBSNAA conducted training to try out the system and ascertain its agencies such as National Disaster of trainers (TOT) in ICS from 2004 to efficacy in disaster response. Response Force (NDRF), Armed 2008 and the MHA directed that NIDM – Col Alok Raj, Faculty of Decision Forces units, State Disaster Response be the nodal agency for conduct of Sciences, College of Defence Force (SDRF), NGOs, voluntary training in IRS. MHA directed that Management, Secunderabad, India organizations and various resources training be conducted at two levels; * Certified that views expressed and suggestions made are made by the author would have to be deployed in on TOT basis and training of in his personal capacity and do not have coordination with the Operation responders in respective states. Even any official endorsement Section of an IRT. IRS can be though ICS has been adopted in India

CROWD MANAGEMENT Crowd Management at Heritage Sites

“ eritage is an essential part of the need to be taken care of with immense minimise the impact of each visitor. Hpresent we live in – and of the caution. One of the major threats to Factors, or variables that can be future we will build.”1 the heritage sites and the visitors affected or controlled, include the themselves is the crowd which flocks number of visitors, the types of “Heritage is something that is passed these sites. It requires professional activity, visitors' behaviour and the down through the generations.”2 management interventions to cater environment's physical and social the requirements of visitors, as well resistance and resilience. A number Heritage is the full range of our as to ensure that the integrity of the of strategies address these variables: inherited traditions, monuments, site is also kept preserved. Visitor levels may be controlled by objects, and culture. Most importantly, reducing the total number of people it is the range of contemporary An Overview of Management allowed at a site or reducing the activities, meanings, and behaviors Strategies3 number of people allowed in one or that we draw from them. Management strategies affecting the several areas of a site by dispersing level and nature of exploitation of a them or by concentrating them in a Heritage sites are embodied in site and its physical and socio- specific area. extremely fragile environments, and economic environment seek to 1 http://www.umass.edu/chs/about/whatisheritage.html 2 http://www.ballarat.vic.gov.au/heritage/about-ballarat%27s-heritage/what-is-heritage.aspx 3 http://whc.unesco.org/uploads/activities/documents/activity-113-2.pdf

10 southasiadisasters.net March 2014 Types of activities can be changed or • raising or lowering prices for challenge to manage both the issues influenced by addressing the ways in certain types of visitors; at the same time. Sometimes a which the activity is practiced, • restricting opening hours, e.g. particular step taken to preserve the offering incentives for people to opening a site early for bird- site works out well towards crowd practise particular activities or watchers or closing it early to management also. imposing direct actions to restrict discourage other clientele; certain activities. A site's physical • offering or not offering Some examples of effective crowd environment may be altered to make infrastructure; management at sites of massive it more resistant to impacts through • prohibiting certain activities Gatherings: the use of infrastructure. through regulation and The Kumbh saw traffic towers and enforcement. barricaded queues; the Lalbaugcha A site's social environment can be Raja mega gathering has learnt how affected by reducing conflicts among A site's physical environment can be to use whistle-wielding volunteers, visitors and between visitors and the made more resistant to impacts by: traffic monitoring volunteers and PA local community. • using infrastructure to "harden" systems. Volunteers dressed in easily a site, e.g., hardening a trail with identifiable uniforms, armed with Management options for reducing the a wooden boardwalk or basic communication equipment, number of visitors to a site can include: installing permanent moorings; crowd management by way of • restricting entry or closing an • relocating infrastructure to more separating blocks of people, all of area; resilient areas, e.g., moving a these are simple techniques to enforce • limiting group sizes; mountain refuge to an area less a good level of orderliness. • implementing a quota or permit prone to erosion. system; Tirumala has an elaborate network • increasing fees; or In India, the nature of heritage sites of queue complexes to regulate the • not providing facilities. plays an important role to deploy the unending flow in a manageable kind of strategies required for a mode. The queues are managed by Options for dispersing or particular site. Generally all the sites trained staff and the complexes are concentrating people to reduce use in of religious importance are also under CCTV surveillance; any a particular area can include: equally important from point of disturbance is addressed in seconds. heritage aspects. It becomes quite a • restricting the number of people Executive director of Andhra Pradesh who can enter the threatened Tourism Development Corporation, area; says, "A disaster management • limiting the permissible length committee has been set up at the state of stay in the threatened area; level. Besides, Tirumala has one of • raising the entrance fee for the the best response actions for any such threatened area only; issue." • not providing facilities in the threatened area; Thus, from the above examples one • zoning an area for a particular can easily understand that managing activity and not permitting the huge crowds is not a big task, but it activity in the threatened area; requires a network of good • directing tourists to more management skills, trained team of resilient areas through zoning, volunteers and personnel equipped visitor education and offering with capacity to handle catastrophic more facilities or fewer facilities; events, thorough surveillance • charging different entrance fees through CCTVs and watch towers on certain days of the week; and which can immediately inform about • using a promotion and any mishaps, a well equipped control interpretation campaign to room that can deploy required influence the use of one area over number of personnel to the location another. and can response in time to minimize the impact. Site managers may encourage visitors – Aditya Jain to practise particular activities by: Source: www.theatlantic.com

March 2014 southasiadisasters.net 11 DISASTER RESPONSE Role of Switzerland in Making World Safer from Disasters loods in the United Kingdom, the Management, SDC has also and organizations under the United Frecent cloud burst in Uttarakhand developed toolkits that integrate Nations umbrella and deals with and the volcanic eruption of Mount DRR measures into all development USAR related issues, aiming to Kelud in Indonesia are just a few interventions. One example of such a establish minimum international examples of recent times that drive tool is the recently published Climate, standards for USAR teams and home the devastating effects disasters Environment and Disaster Risk methodology for international can have on human settlements. Reduction Integration Guidance coordination in earthquake response Disasters also have the power to wipe (CEDRIG). This toolkit helps based on the INSARAG. out the development progress development practitioners in achieved through decades of assessing risks, evaluating them and With the available expertise and investments. In this context in proposing appropriate risk experience gained through operations addressing the causes of disasters and reduction measures. over the past three decades, Switzerland responding to them in a timely has been supporting countries to get manner have been key pillars of the Reaction their national teams classified by the Swiss foreign policy. In the event of major catastrophes, INSARAG secretariat. In India, Switzerland has at its disposal the Switzerland has been supporting the Switzerland, primarily through the services of the Swiss Rescue. The efforts of the National Disaster Swiss Agency for Development and Swiss Rescue is a specialized corps of Management Authority (NDMA) in Cooperation (SDC) of the Federal the Swiss Humanitarian Aid unit getting a team of the National Department of Foreign Affairs which can be immediately deployed Disaster Response Force (NDRF) (FDFA) promotes a three pronged abroad primarily following classified by the INSARAG secretariat. approach comprising of Prevention, earthquakes for the purpose of Reaction and Recovery to address locating and rescuing buried victims. Recovery disaster risk reduction (DRR). Soon after the immediate threat posed Being one of the pioneers in the field by a disaster is contained, the longer Prevention of Urban Search and Rescue (USAR), and more difficult process of Prevention is a long term Switzerland has been instrumental in recovery commences. Switzerland's commitment wherein SDC diligently the formulation of the operating commitment to this more strives to integrate DRR concerns into guidelines of the International Search challenging process has always been its projects in a systematic manner. and Rescue Advisory Group guided by the need to incorporate the In addition to integrating DRR (INSARAG). The INSARAG is a global lessons from past experiences into the measures into the Project Cycle network of more than 80 countries rehabilitation and reconstruction

Training of NDRF personnel towards INSARAG External Classification.

12 southasiadisasters.net March 2014 process. For example, soon after the any true meaningful engagement in International Federation of Red Cross 2010 earthquake in Haiti, SDC set up a making the world safer from disasters and Red Crescent Societies (IFRC). competence center for reconstruction requires the concerted efforts of the Switzerland has also been active in in order to train the local workforce global community. With this in mind, linking and promoting DRR within in the construction of earthquake- Switzerland has been active in the implementation of resistant buildings. In the aftermath strengthening the international environmental conventions and of the 1999 super cyclone in Orissa, system through the promotion of other international frameworks and SDC was heavily engaged in a DRR initiatives and coordination mechanisms, in particular the United partnership with the Government of mechanisms and by supporting, in Nations Framework Convention on Orissa in strengthening the cyclone particular, the ISDR Secretariat Climate Change (UNFCCC) and the shelters for the future. (International Strategy for Disaster United Nations Convention to Reduction) in Geneva, the Combat Desertification (UNCCD). In spite of such a three pronged UNDPBureau for Crisis Prevention – Daniel Ziegerer, Director of approach, Switzerland is aware that and Recovery (UNDP/BCPR) and the Cooperation of SDC

SCHOOL SAFETY AUDIT School Safety Assessment of Cyclone Thane – Affected Schools

he rural schools in the district of taken some positive steps TVillupuram of Tamil Nadu are in educating staff and exposed to multiple disaster risks. In students and made first-aid last decade these schools have suffered kits available, most of massive losses from disasters such as them needed additional the 2004 Indian Ocean tsunami and support to strengthen severe tropical cyclones such as the preparedness levels. Some 2008 Cyclone Nilam and 2011 of the most urgent issues Cyclone Thane. Being located in were overcrowding in impoverished and remote areas, and classrooms, inadequate Photo: AIDMI. being highly under-resourced, many toilets, unsanitary kitchens, Understanding of school safety audit form at of these schools were in critical need no safeguards against fires, Panchat Union School, Narsinghpuram, of assistance during these disasters. and lack of planning for Villupuram District, Tamil Nadu. During their response to the 2011 emergency supplies of Cyclone Thane in Villupuram, food, water, medicine, and shelter. • Develop comprehensive disaster AIDMI and Kalvi Kendra realized the preparedness and response plan need for assessing safety levels of Given their remoteness and lack of and institutionalize regular these schools and conducted an in- resources, these schools require a mock drills as a part of the depth survey of 15 schools in the substantial amount of assistance for curricula blocks of Koliyanur and transformation into a safer learning • Install fire safety measures and Kandamangalam of Villupuram with institutions. However, till today the build/upgrade hygienic WASH support from Cordaid. assistance from government facilities authorities and others has largely • Provide micro-insurance From November 30 to December 01, been restricted to education and coverage for all staff and students 2012 the 15 schools were asked to fill awareness-raising activities and no • Where necessary, improve the out detailed questionnaires on the concrete support to implement other structural resilience of school safety features in their school structural and non-structural buildings e.g. secure ceiling buildings, their recordkeeping measures is made available to them. beams and build concrete walls systems, levels of awareness, Thus, it is proposed to launch Phase • Train staff in disaster provision of disaster preparedness II for Action to follow-up and preparedness and first-aid, and mitigation features and inclusion implement, recommendations of the including emergency response of disaster education in their school safety assessment focusing on procedures. education curricula. The assessment the followings. For more information, please contact revealed that although schools had AIDMI at [email protected] March 2014 southasiadisasters.net 13 DISASTER RISK REDUCTION The EU's Disaster Risk Reduction Work in India

ndia is one of the most disaster- Iprone regions in the world, exposed to an array of natural hazards including floods, droughts, earthquakes, tsunamis and cyclones. With the aim to strengthen the resilience of communities to better withstand, adapt and recover from these recurring natural phenomena, the Humanitarian Aid and Civil Protection department of the European Commission (ECHO) has been funding disaster risk reduction initiatives in the country since 2001. Indeed, ECHO realised early on that strengthening the resilience of communities was not only cost effective, but also empowering for people. Through its worldwide Photo credit: Aftab Alam ECHO partners have helped create village teams responsible for early warning Disaster Preparedness programme, systems, search and rescue, first aid, and child and women protection during a known as DIPECHO, it has provided disaster situation. Each team receives specialized training and a specific uniform over €8 million to help vulnerable to distinguish them from the others. communities in India reduce the impact of floods, cyclones and other In regions such as Assam, Bihar or ECHO has also pioneered new ways natural disasters. Odisha, where inundations occur on to strengthen the resilience of people. an annual basis, shelters provided For instance, a project financed by For example, ECHO partners have over the years are designed to be ECHO in Puri district of Odisha has been working in the Sunderbans delta resilient: they are either built on high helped several hundred families in West Bengal, which is frequently raised plinths to ensure they remain claim for compensation after their hit by floods and cyclones, putting in above the water level, or made easy houses were destroyed by Cyclone place village teams responsible for to dismantle, so that they can be Phailin in October 2013. Concern early warning systems, search and shifted quickly - particularly for Worldwide, which conceived the rescue operations, first aid, and child communities who reside along project, had helped insure the crucial and women protection during a shifting river embankments. Tube- assets of almost 1,000 most natural disaster. Each team has wells being provided are also built vulnerable families, including their received specialized training and on elevated platforms, to ensure that houses, against disaster losses with necessary equipment such as they remain functional even in times an India-based insurance company. stretchers and first aid kits. Mock drills of flooding. are also being organised to raise In 2013, ECHO launched DIPECHO's awareness amongst the villages. One of the main objectives of Seventh Action Plan for South Asia, DIPECHO programmes in India is to which covers 20 projects totalling promote tested models so that they €12.6 million. Implemented through can be institutionalised and replicated 45 partners, these projects are spread by government authorities at a much throughout the region, in Nepal, bigger scale. ECHO partners, Bangladesh, Sri Lanka, India, therefore, aim to build synergies with Pakistan, Afghanistan and Bhutan. development partners and Since 2001, it has allocated over €50 government agencies to ensure million for disaster preparedness disaster risk reduction measures are activities in the South Asia region. integrated in local, state and national – Arjun Clair, A woman rescued by Search and Rescue development plans. ECHO, New Delhi team in West Bengal.

14 southasiadisasters.net March 2014 CHILDREN AND DISASTERS Children in the Uttarakhand Disaster

he June 2013 floods in raised to the ground. Most of the Since destroyed livelihoods mean a T Uttarakhand have had an damaged school buildings still lie in loss of income that translates to extremely detrimental impact on a state of disrepair leaving the education disruption and inadequate children, adolescents and students. education and future of children who upbringing support to children, The fact that schools suffered the most attend them utterly precarious. The therefore there is an urgent need to damage as compared to other detrimental impacts have been work out a livelihood restoration and government structures in the particularly pronounced on Primary rehabilitation strategy in indiscriminate fury unleashed by the and Junior High Schools. In Chamoli, Uttarakhand. Many voluntary floods speaks volumes about the out of the 1142 schools in the district organizations have recognized this indifference and disregard that 98 were damaged by this disaster, and have started providing schools regularly are subjected to at with more than 38 schools being vocational training to the people of the hands of the local administration. completely levelled. Similarly, in the affected areas to improve their The school building policies and Rudraprayag, 87 schools were livelihood prospects. But there is still disaster mitigation programmes of damaged with 57 being completely a lack of a concerted long term policy the state government are equally obliterated. The damage suffered by on livelihood recovery. culpable for this plight of schools in schools had a direct impact on the state. children by disrupting their It is an inconvenient truth that had education for weeks. Gradually, as laws relating to child labour not been The Uttarakhand disaster has exposed these schools resume operations, the flouted with such impunity, no the vulnerability of children and teachers note that the ability of children would have been employed adolescents by adversely affecting children to understand and on the precarious slopes of Kedarnath their education and health. Although internalize has taken a severe blow. to ferry pilgrims about and the official count of children consequently no children would have orphaned by the floods stands at 13, To mitigate the impacts of this perished in this terrible disaster. The in reality, many more children have disaster on children, it is imperative issue of brazen violation of laws been pushed into a semi-orphaned to frame mitigation and related to child labour has yet to state of existence due to this disaster. rehabilitation policies that capture the popular imagination, This can be blamed squarely on the incorporate the perspective of perhaps it is a manifestation of the adverse impact that this disaster had children. The first step towards this deep entrenchment of child labour in on the livelihoods of many families, ideal should be the building of our society. Perhaps this is why we particularly those that earned their resilient school buildings. Pre- consider it normal for children to bread through tourism around the fabricated techniques for school perish working when they should pilgrimage sites. This is manifest by building that are quick and safe and have been enjoying the pleasures of the poor performance of the children lead to lighter structures is an childhood. In this way his disaster has of the affected families in the approach that could be flowed. also exposed our capacity for aftermath of the disaster on all Unfortunately, no such effort has been callousness. parameters of health, education and undertaken as of now. upbringing. Thousands of The only way to redeem children from the districts of ourselves is to work towards Pithoragarh, Bageshwar, building a world which Chamoli, Rudraprayag, holds the promise of a safe Chamoli and Uttarkashi have and happy future for our been dealt a similar card by children. This is the only way fate. to commemorate the memory of all those children The figures of the damage to who perished in this schools aver to this sad tale. The catastrophe. Uttarakhand disaster damaged – Omprakash Bhatt, more than 873 schools, out of Sarvodaya Centre, Gopeshwar, which 176 were completely Chamoli, Uttarakhand

March 2014 southasiadisasters.net 15 MAKING SAFER SCHOOLS School Safety and Crowd Management

chools are considered potent school, level of preparedness etc. hours or at any other function. Shubs of capacity building for Here we need to mention the role of However, when emergency children as they nourish the future an effective evacuation plan with a incidents are considered, it becomes of any country. These are the place systematic crowd handling plan in the essential to chalk-out the formalities where children of a nation acquire school. A well designed evacuation with proper standard operative skills which equip them to face the route and floor-wise evacuation map procedures (SOP) in this regard. challenges of adulthood. Since, a plays a vital role in the safe and fast Crowd Management is expected to school may house many children at evacuation of the school crowd. look at all possible ways that can a time and since these numbers avoid such a chaotic situation. translate into huge gatherings and Management of crowd is such an congregations at schools, therefore aspect of the larger whole which Mock Drills (a simulation drill of a proper procedures and practices to becomes a necessity for the safety of real situation of an emergency) regulate such crowds becomes children. Generally, safety is looked provide schools with an indispensable. at from the point of view of threats opportunity to visualize images of or hazards which are defined as emergency scenario and how crowd Crowd Management is an potential causes that can bring in will move and open up an important aspect with respect to injuries and life loss as well as damage opportunity to strengthen the school safety which cannot be to infrastructure. However, having crowd management and evacuation undermined in any respect. Schools said so stampede forms the top plans. Discipline and control, system are vulnerable to different disasters priority in almost all settings where and coordination, responsibility like earthquake, stampede, fire crowd gathering is involved either and leadership are key concerns for accidents etc. which needs to be occasionally or frequently. But a effective crowd management handled with effective crowd school is a place where crowd planning in schools. The ability to management skills. The aspect that gathering of minors is a routine visualize and handle nerves when raises the concerns may be with phenomenon. Each school has set up crowd are left with panic, hue and different age groups of the students, its own system of controlling and cry requires skill, confidence, the level of understanding, numbers guiding the behavior of crowds of decision making power and self of total students (enrollment) in the children whether during assembly belief among those responsible. – Kuldip Kalita

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Editorial Advisors: Anshuman Saikia Madhavi Malalgoda Ariyabandu Regional Programme Support Coordinator International Strategy for Risk Reduction (ISDR) – ARO, IUCN (International Union for Conservation of South Asia, Sri Lanka Nature), Thailand Mihir R. Bhatt Denis Nkala All India Disaster Mitigation Institute, India Regional Coordinator, South-South Cooperation and Country Support (Asia-Pacific), United Nations Dr. Satchit Balsari, MD, MPH Development Programme, New York The University Hospital of Columbia and Cornell, New York, USA Ian Davis Visiting Professor in Disaster Risk Management in T. Nanda Kumar Copenhagen, Lund, Kyoto and Oxford Brookes Chairman, National Dairy Development Board Universities (NDDB), Anand, Gujarat, India

ALL INDIA DISASTER MITIGATION INSTITUTE 411 Sakar Five, Near Natraj Cinema, Ashram Road, Ahmedabad–380 009 India. Tele/Fax: +91-79-2658 2962 16 southasiadisasters.net March 2014 E-mail: [email protected], Website: http://www.aidmi.org, www.southasiadisasters.net